Summary

In spite of the internal diversity within Latin America and Europe, and of the differences between them, both regions share a common concern for inequality and vulnerability and both engage in dialogue on shared values such as social cohesion. Programmes like EUROsociAL facilitate this cooperation and the exchange of experiences and practices between public institutions, with a very pragmatic approach of “peer learning” - shown to be an effective method for promoting tangible changes in public policy. The Programme reflects the interest of Latin American countries to incorporate lessons learned from European policies, as well as those from their own region, thus engaging in South-South cooperation dynamics.

Introduction

Most Latin American countries, even at different speeds, have achieved a breakthrough in the fight against poverty and on improving income distribution (CEPAL 2014) as a result of strong growth and innovative social programs. However, their societies continue to be marked by economic uncertainties, with persistent inequality and high vulnerability (Hardy 2014).

Europe, where most countries have seen increased inequality as a result of the adjustments after the economic crisis, continues nonetheless to be the most egalitarian region, retaining, reactivating and redefining the value of social cohesion in its policies and programmes (Dobbernack 2014).

The recurring discourse of poverty, central concern for the governments of Latin America in the 90s, is now moving towards the problems of social exclusion, and for a more inclusive development based on solidarity, equity, political legitimacy or recognition of diversity, with a focus on rights; thus approaching the tenets of the so-called social cohesion in Europe (Hardy 2014).

This approach and the common concern for equality is embodied in the 2004 Guadalajara (Mexico) LAC-EU Summit, in which the Heads of State and Government of Latin America and Europe agreed to establish social cohesion as one of their priorities. From here stems the mandate for the EUROsociAL Programme which, through the exchange of experiences, expertise and good practice between the two regions, aims to support effective changes in public policies to improve social cohesion.

The second phase of the EUROsociAL Programme (2011-16) occurs at an inflection point for the international development agenda. The number of low-income countries is falling, while the group of middle-income countries is becoming more heterogeneous. Some of them are laden with important structural deficits and severe vulnerabilities, thus suffering the so-called middle-income trap. On top of this, they are also called to take on increasing responsibility in the global solution of collective problems (Alonso 2013), including migration, taxes or youth unemployment.

International cooperation remains essential to achieve many of these objectives in middle-income countries, particularly in Latin America. But it must respond to the region's heterogeneity, working with different agendas according to the conditions and context of each country, whilst maintaining a comprehensive perspective. If we accept that the financial aspect is less important, international cooperation must be horizontal and based on incentives to mobilize additional resources and capabilities. It must promote processes of change and overcome some obstacles, eg those related to the lack of social cohesion or low institutional quality, which are mutually reinforcing (see Alonso 2013).

These approaches and guidelines inform the EUROsociAL programme, which promotes policy dialogue with regional and network work around shared problems to support, nonetheless, national policies, adapting to the contexts, times and priorities of each country. The programme mobilizes the specialized public "know-how". It promotes public assistance to share and transfer experiences and practices between peer institutions, thus exploiting the power of "peer learning", with both European and Latin American institutions, in order to incentivize change and energize a rich exchange of South-South cooperation.

Policies for social cohesion

The concept of social cohesion is continually rethought in light of the key issues that fragment societies, and that separate people, groups and regions from the benefits of development. This encompasses: a) inter-personal, community cohesion issues based on race, ethnicity or faith; b) intergroup, highlighting issues of integration and with a greater focus on the material equality agenda such as education, employment, housing, etc. (Ratcliffe y Newman 2011); and c) inter-territorial, such as accessibility and infrastructure, economic development, or opportunities and productive potential of territories.

The EUROsociAL Programme uses the concepts of social cohesion of the Council of Europe (Council of Europe 2004), and of the ECLAC (CEPAL 2007), and its subsequent developments (EUROsociAL 2013). Both conceptions are rooted in the rights approach, and highlight the objective component of social cohesion as explained by the (material) gaps in income, opportunities or rights; as well as its subjective nature around the sense of belonging (CEPAL 2010). Underlying the concept is an ultimate ideal, a goal, an aspiration to social justice, which allows us to talk about more or less cohesive societies according to the degree to which social dilemmas are resolved. But it is equally important as a process, in how these dilemmas are solved by spontaneous or planned solutions (Pérez-Yruela 2012), and which requires both political and institutional arrangements to give them legitimacy. This means that social cohesion also has an instrumental character that determines the quality of institutions and ultimately the development of societies (Alonso y Garcimartín 2012).

All this makes social cohesion a valuable guiding principle of public policy (Soleto y Zamora 2010). But how can we translate this concept to policy and practice? It is a complex task that must pay heed to a wide variety of sensitive and interrelated public policies. Indeed, there may be widespread consensus that inclusive social policies in education, health, employment and social protection constitute the core of cohesion policies. But those areas that support the state are also crucial: policies that provide it with resources and the ability to assign them with equity (Tax Policy); or that underpin the institutions and legitimacy for this, such as Justice, Security, Transparency and the absence of corruption, among others (Governance). All affect the closing of gaps and the sense of belonging that characterize the more cohesive societies. On all these areas, EUROsociAL works supporting priority agenda issues in each country, as well as those common to several countries.

In any case, as already mentioned, a hallmark of cohesive societies is their ability to dialogue, to reach consensus and agreements, and to apply them. EUROSociAL is demand-driven as the beneficiary governments themselves define the actions to be implemented. In that sense, its role as a catalyst and in stimulating dialogue processes has been remarkable. Specific examples are presented below to showcases some policies and processes that the program has supports in Latin America in recent years. These examples illustrate certain features and characteristics of EUROsociAL that provide it with its uniqueness as cooperation program.

Country dialogue: collective, regional and peer. The role of Networks

The issues to improve social cohesion not only affect one country. Despite the rich diversity of Latin America, there are common interests, problems and challenges to certain countries that are addressed more effectively from joint initiatives. There are also converging strategic looks and similar objectives, despite different stages of progress, that public policies aim at.

Therefore regional cooperation is important. EUROsociAL promotes the elaboration of common products between countries, both in terms of strategic directions -eg policy models- as well as operating guidelines -eg protocols- to steer and implement policies. It stimulates the exchange of experiences so that certain practices can inspire and drive forward reform processes in "peer" institutions in other countries. It therefore favours South-South cooperation, but also allows giving greater reach to European added-value and three-way cooperation, so that European contributions in one country can spread to others in the region.  

The Transparency and Access to Information Network (RTA) – Chile's South-South Cooperation

In recent years, Latin America has progressed remarkably in terms of taking up the issue of corruption in government agendas. There has been an improvement of the legal and institutional frameworks and most countries have adhered to international initiatives. Specifically, a Transparency and Access to Information Network (RTA, Red de Transparencia y Acceso a la Información) was created and is led by the Council for Transparency in Chile and the Federal Institute of Access to Information in Mexico. EUROsociAL is supporting this Network with the development of common products for the countries that form part of it, such as the newly agreed transparency measurement tool or a template for file management. In addition to these agreements to be subsequently implemented at national level, the exchange of information under the Network has inspired ongoing reforms through the sharing some of the most advanced Latin American experiences. Hence, El Salvador is receiving support from Chile towards the implementation of its Law of Transparency and Access to Public Information, as well as the development of a strategic plan for its recently created Access to Information Institute. Similarly, Colombia has also received great support from Chile in all its transparency policies these past few years.

The Latin-American Network for Regional Development - From Merida to Tijuana (Mexico) on the path of territorial cohesion

Mexico is a country with a social, economic, cultural and ethnic complexity that is shown in the various regions and states that compose it, with great differences between them. The Government recently approved a National Strategy for Regional Development to be implemented through three Regional Development Programmes for the Central, North and South-Southeast areas. There is a presidential mandate to combat inequality so that from Merida to Tijuana the opportunities to create prosperous conditions are the same.

The EUROsociAL Programme is supporting this view of territorial equity, facilitating information on Europe's rich experience in territorial cohesion policies, and promoting policy dialogue in the framework of the newly created Latin American Network of Regional Development, which includes countries that are willing to share experiences and knowledge on these national policies, share problems, and seek solutions through collaborative work between them.

Mexico chairs the Network, originally promoted by Brazil, in 2015. ECLAC, the Development Centre of the OECD, the Regional Development DG of the European Commission, and the Committee of the Regions of Europe are all members of a Support Group to the Network.

The Justice Networks: recommendations, policy models, and regional protocols

EUROsociAL's work with networks is remarkable in the area of ​​Justice, where there are formal and institutionalized networks, be it Ibero-American or Inter-American. Many of them are natural partners or allies whose agendas converge at times. Thus EUROsociAL has supported the elaboration and approval of regional products from such networks, including: i) a Regional guide for the public defender and the comprehensive protection of persons deprived of liberty, adopted by the Inter-American Association of Public Defenders (AIDEF); ii) Recommendations for inter-agency coordination in the fight against corruption, approved by all regional networks of Justice (COMJIB, CJI, AIAMP), Tax Administrations (CIAT) and Supreme Audit Institutions (OLACEFS); iii) Rules for the employment and social inclusion of persons deprived of liberty (Ministries of Justice); iv) Regional model for the prevention of violence and crime with a comprehensive approach; v) Coordination mechanisms to reduce barriers to access to justice, etc.

In-Country Dialogue among different actors

Although EUROsociAL is designed to work with governments and facilitate inter-governmental exchanges between Latin America and Europe, it also promotes cooperation with - and between - national judiciaries. But there are other actors whose participation is valuable in improving social cohesion: parliaments, civil society, social partners, and the private sector.

The Honduran ESC: the search for dialogue and agreement in times of crisis

From 2009, after a period of strong political instability, dialogue and consultation have emerged as crucial areas to reinforce democratic governance in Honduras. To address these challenges, the Economic and Social Council (ESC) began a strengthening process with the mandate to carry out, amongst others, the monitoring of the "Great National Agreement for Economic Growth with Social Equity". In this context, together with the promotion of a culture of dialogue, it was considered essential to raise the legal status of its constitutive legal framework and update its bylaws.

EUROsociAL promoted the initiative through a cycle of experience exchange between the Honduran Council and their counterparts in Spain, France, Brazil, as well as the Economic and Social Committee (EESC). In January 2014, the National Congress of Honduras approved the ESC Law.

The Honduran Council now has greater stability and certainty, and is capable of initiating actions to address important challenges such as the search for consensus in key areas like the Legal Framework for the National System of Continuing and Professional Education, or Social Security reform.

Private Sector participation: Three-way cooperation to extend employment services in Colombia

EUROsociAL has supported the Colombian Ministry of Labour to create a new management system integrating the mediation function with other services related to active labour market policies. This new system has facilitated the involvement of the private sector more systematically and effectively.

With the support of EUROsociAL, the Ministry of Labour, Employment and Social Security of Argentina shared its experience using the Technology Platform of the Employment Services Network. This platform originated from Italia Lavoro, who assumed a key-role in training Colombian Ministry of Labour staff, thus showcasing an interesting triangular cooperation.

This Platform and the staff training have helped to increase the number of employment offices from 35 to 250. Consequently was created the new Employment Agency, a crucial institution which has provided the offices with common procedures and uniform quality standards.

Promoting inter-personal dialogue: the use of Alternate Dispute Resolution Mechanism (ADRM) in Nicaragua

In Nicaragua, citizens have access to mechanisms that allow them to resolve conflicts that arise in their daily lives, without going through formal judicial processes, through the mediation of professionals. This is a means to greater community cohesion, to bringing justice to citizens, and to building trust in institutions.

To accompany Nicaragua in promoting the use of ADRM, EUROsociAL has supported the elaboration of an outreach strategy with participatory methodology that allows citizens to be actively engaged in solving their differences and disputes, and to contribute to a culture of peace.

As with other cases, the process started from a regional perspective, with the adoption of a common conceptual framework for the development of National Strategic Plans, subsequently developed nationally. Currently, Argentina, Honduras, Costa Rica, Paraguay and Peru have adopted their National Plans; and Brazil has advanced in its design. In parallel, the participating countries are feeding into the "Latin American map of ADR" virtual platform of best practices in the region.

Institutional Dialogue: linkages and coordination to address cross-cutting issues

Social issues do not correspond neatly to the fields of public policy (justice, health, etc). The problems in complex societies are sophisticated, multifaceted, interconnected and cross-cutting. Tackling them requires well-oiled dialogue, communication and feedback mechanisms amongst policy makers in order to find and implement comprehensive and effective solutions.

Support to women victims of gender violence in Honduras

In particular, gender violence is a complex phenomenon and responding to it requires taking a holistic perspective involving health, security, employment, justice and educational institutions. It is also a challenge shared by Europe where gender violence prevalence is not so different. The origin has a common base, a culture in which men are entitled to control women including through violence.

To address this issue, Honduras has initiated a process of inter-institutional, intersectoral linking that includes civil society organizations, coordinated by the judiciary. It is an important step in the implementation of a national policy of access to rights, particularly for women victims of domestic and family violence. EUROsociAL has accompanied this process and as a result CAPRODEM (Centre for the Care and Protection of the Rights of Women) has been opened. The Programme has also supported the design and implementation of a protocol for comprehensive care to women victims of violence. This protocol sets up standardized guidelines to be followed by each institution involved (judicial, police, tax, health, social and education) to improve the prosecution and punishment of acts of violence against women, as well as provide them with a comprehensive assistance and protection, in order to prevent secondary victimization. It seeks to bring a quick response to women victims through an effective referral system. This requires a sophisticated exercise in coordination, which is supported by operating protocols.

Quality of spending for social cohesion: Budgeting for Results in Peru

No tax is legitimate if government spending is not effective, efficient and equitable. Citizens must be able to perceive that what is spent is generating results, improvements in public services and therefore in their quality of life. The implementation of performance budgeting in Peru since 2007 is a momentous reform to improve the management of public resources and EUROsociAL is supporting some of its elements.

Budget reforms are usually long, expensive, and difficult to implement, they require new procedures and skills and often a new culture. One of the prerequisites is coordination between the different actors involved in the planning and budget processes. This not only involves the Ministries of Finance and Planning (when separated), but also the sectoral ministries (horizontal coordination) and the different territorial levels of government (vertical coordination). EUROsociAL is supporting this joining up from different angles, including Public Finance, Social Policy and Regional Development.

Fiscal Responsibility, Training, Employment, Formal Economy: the case of Accounting and Tax Support Centres (NAF)

Accounting and Tax Support Centres are an initiative of the Federal Revenue of Brazil that, with the support of EUROsociAL, has been exported to several other universities in Latin America. Economics and business students from universities carry out tax consulting practice offering their services to low-income people in order to help them with any management, accounting and tax paperwork needed to be formalized or during the early stages of setting up their small businesses. It constitutes a model of university social responsibility whereby links between the different actors are strengthened: the Tax Administration, which fulfils its role in raising tax awareness; the University, which offers practical knowledge to its students and strengthens its ties with the community; and the students, who benefit from the training and fulfil a social function vis -a -vis the poorest citizens who receive their support.  

Since 2013 and within its remit for tax education, EUROsociAL has promoted the creation of the Accounting and Tax Support Centres (Núcleos de Apoyo Fiscal, NAF) with the support of the Federal Revenue of Brazil, extending to Honduras, Chile and Costa Rica, and has already signed agreements to open centres in El Salvador and Guatemala. In Mexico, they have had a significant success, with 56 universities in 30 federal states using this model.

Conclusion: dialogue as a transforming element and a catalyst for change

Social inequality and vulnerability make the aim of improving public policies for social cohesion very relevant and, to achieve them, horizontal cooperation and peer exchange are ideal tools. There is a need and an interest in cooperation between Europe and Latin America in this regard.

With specific examples, EUROsociAL shows a very pragmatic way to support public policy for greater social cohesion through a results-oriented cooperation. Its success rests on the fact that, given a desired reform or change (result) as identified by policy makers (ownership), the perspective of the path taken by other "peers", their successes and failures, inspires and encourages change, occasionally bestowing on the reform international legitimacy.

Policy dialogue between equals is therefore a catalyst and an incentive for change. However, large reforms are not always needed; indeed, often, incremental improvements that make policies more effective are sufficient. Thus, the mere opening of a dialogue between institutions can be invaluable. The role that Latin American institutions have demanded of EUROsociAL has often placed the programme in the position of facilitating dialogue and coordination between both public institutions and other actors.

Providing quality dialogue between European and Latin American institutions builds and consolidates the necessary trust to drive change processes forward, pointing to a more sophisticated cooperation, of mutual support, that is suitable for middle income countries, particularly Latin America, a region that has put the objectives of social inclusion and equality squarely at the heart of the public agenda.

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This article was originally published in Latin América Polity Journal · Harvard Kennedy School · Fourth Edition 2015