Spain
In February 2023, Spain approved a Law on Co-operation for Sustainable Development and Global Solidarity with the support of all parliamentary forces except one. The law aligns Spain’s priorities to the 2030 Agenda and the Paris Agreement on climate change and gives legal status to its commitment to allocate 0.7% of gross national income (GNI) to official development assistance (ODA) by 2030. Geographic priorities remain Latin America, the Maghreb, West Africa and the Sahel, and Spain adapts its thematic focus according to its partners. Spain’s total ODA (USD 4.2 billion, preliminary data) increased in 2022, mostly due to in-donor refugee costs. ODA represented 0.3% of GNI.
Find the methodological notes behind the profile here.
The general vision and architecture for Spain’s development co-operation are set out in the 2023 Law on Co-operation for Sustainable Development and Global Solidarity. Spain’s development co-operation aims to promote sustainable human development by reducing poverty and inequality. In addition to social and economic development, the law commits to supporting a just ecological transition and climate justice, human rights, the promotion of peace, global citizenship, and gender equality. It also states that preferential attention will be given to countries and territories with geographic and cultural proximity in North Africa, the Middle East and sub-Saharan Africa, in particular in West Africa and the Sahel, Spanish- and Portuguese-speaking countries, and Latin America and the Caribbean.
Spain supports multilateral co-operation to address global challenges more efficiently, and the majority of its development co-operation is multilateral ODA. Multilateral development banks and the European Union (EU) are key partners for Spain’s engagement in Latin America, including in co-financing arrangements. At the international level, it has been taking active roles in peace negotiations in Colombia and the Philippines.
Findings from OECD-DAC reviews
The 2022 OECD-DAC peer review praised Spain for its focus on the 2030 Agenda, building inclusive and horizontal partnerships, and championing mutual learning. The review underlined some challenges Spain faces in steering all Spanish partners towards an integrated strategy. It recommended streamlining financial co-operation and seeking complementarities between financial and technical co-operation. Most of the recommendations were addressed in the 2023 Law on Co-operation for Sustainable Development and Global Solidarity. Learn more about Spain’s 2022 DAC peer review.
Spain provided USD 4.2 billion (preliminary data) of ODA in 2022 (USD 4.6 billion in constant terms), representing 0.3% of GNI.1 This was an increase of 26.1% in real terms in volume and an increase in share of GNI from 0.26% in 2021. Following a decade of budget cuts, ODA levels were stable between 2017 and 2020, with notable increases since 2021. Spain is not yet in line with its domestic and international and EU commitments to achieve a 0.7% ODA/GNI ratio by 2030. However, the new 2023 Law on Co-operation for Sustainable Development and Global Solidarity now gives legal status to the commitment. Within Spain’s ODA portfolio in 2021, 98.9% was provided in the form of grants and 1.1% in the form of non-grants.2
In 2022, Spain ranked 20th among Development Assistance Committee (DAC) member countries when ODA is taken as a share of GNI (preliminary figures). Spain stands out for the share of its ODA channelled through civil society organisations (CSOs) (43.9% in 2021). It is also among the DAC members with a high share of interventions that target gender equality as their principal objective (16.1% in 2020-21). Most bilateral ODA continues to go to countries in Latin America. In line with its geographical priorities, Spain allocated the majority of its gross bilateral ODA to middle-income countries in 2021.
Spain is committed to several international targets, Development Assistance Committee standards and recommendations. Learn more about DAC recommendations.
Spain provided a higher share of its ODA multilaterally in 2021. Gross bilateral ODA was 41.2% of total ODA. Thirty-six per cent of gross bilateral ODA was channelled through multilateral organisations (earmarked contributions). Spain allocated 58.8% of total ODA as core contributions to multilateral organisations.
In 2022, Spain provided USD 85.3 million of gross bilateral ODA to Ukraine to respond to the impacts of Russia’s war of aggression. Preliminary estimates on humanitarian ODA to Ukraine are not yet available. In 2021 it provided USD 0.1 million.
In 2022, Spain provided USD 304.6 million in ODA for the COVID-19 response. Regarding COVID-19 vaccines, donations of excess doses to developing countries accounted for USD 184.8 million of ODA. In 2020 and 2021, Spain’s total bilateral support for COVID-19 response was USD 152.8 million and USD 525.4 million, respectively.
In 2021, Spain provided USD 2.7 billion of gross ODA to the multilateral system, an increase of 20.5% in real terms from 2020. Of this, USD 2.2 billion was core multilateral ODA, while non-core contributions were earmarked for a specific country, region, theme or purpose. Project-type funding earmarked for a specific theme and/or country accounted for 4.1% of Spain’s non-core contributions, and 95.9% was programmatic funding (to pooled funds and specific-purpose programmes and funds).
Fifty-six per cent of Spain’s total contributions to multilateral organisations in 2021 was allocated to EU Institutions.
The UN system received 22.1% of Spain’s multilateral contributions, mainly in the form of earmarked contributions. Out of a total volume of USD 607.5 million to the UN system, the main UN recipients of Spain’s support (core and earmarked contributions) was WHO (USD 373.8 million).
See the section on Geographic and sectoral focus of ODA for the breakdown of bilateral allocations, including ODA earmarked through the multilateral development system. Learn more about multilateral development finance.
In 2021, Spain’s bilateral spending increased compared to the previous year. It provided USD 1.5 billion of gross bilateral ODA (which includes earmarked contributions to multilateral organisations). This represented an increase of 39.2% in real terms from 2020. In 2021, Spain focused most of its bilateral ODA on Health and well-being.
In 2021, country programmable aid was 32% of Spain’s gross bilateral ODA, compared to a DAC country average of 45.2%. In-donor refugee costs were USD 232.1 million in 2021, an increase of 12.3% in real terms over 2020, and represented 15.2% of Spain’s gross bilateral ODA.
In 2021, Spain channelled bilateral ODA through civil society organisations and multilateral organisations, as earmarked funding. Technical co-operation made up 2.7% of gross ODA in 2021.
Civil society organisations
In 2021, CSOs received USD 672.7 million of gross bilateral ODA. No gross bilateral ODA was allocated to CSOs as core contributions and 43.8% was channelled through CSOs to implement projects initiated by the donor (earmarked funding). From 2020 to 2021, the combined core and earmarked contributions for CSOs decreased as a share of bilateral ODA, from 56.4% to 43.9%. Learn more about ODA allocations to and through CSOs, civil society engagement in development co-operation, and the DAC Recommendation on Enabling Civil Society in Development Co-operation and Humanitarian Aid.
In 2021, Spain’s bilateral ODA was primarily focused on America. USD 446.3 million was allocated to America and USD 331.3 million to Africa, accounting respectively for 29.2% and 21.6% of gross bilateral ODA. USD 59.9 million (3.9%) was allocated to the Middle East. Bilateral allocations to Africa are increasing, in line with the increased policy focus on the region. The Americas was also the main regional recipient of Spain’s earmarked contributions to multilateral organisations.
In 2021, 26.8% of gross bilateral ODA went to Spain’s top 10 recipients. Seven of its top 10 recipients are in Latin America, in line with Spain’s historical focus on the region and support for countries that are transitioning to upper middle-income status. The share of gross bilateral ODA that was not allocated by country was 45.3%, with 33.5% of this unallocated bilateral ODA spent on refugees in the donor country.
In 2021, the least developed countries (LDCs) received 14.9% of Spain’s gross bilateral ODA (USD 228.7 million). This is lower than the DAC average of 22.9%. Spain allocated the highest share of gross bilateral ODA (22.1%) to lower middle-income countries in 2021, noting that 45.3% was unallocated by income group. Spain allocated 11.0% of gross bilateral ODA to land-locked developing countries in 2021, equal to USD 167.8 million. Spain allocated 2.4% of gross bilateral ODA to small island developing states (SIDS) in 2021, equal to USD 36.4 million.
Fragile contexts
Support to fragile contexts reached USD 354.3 million in 2021, representing 23.1% of Spain’s gross bilateral ODA. Nineteen per cent of this ODA was provided in the form of humanitarian assistance, increasing from 14% in 2020, while 13.8% was allocated to peace, decreasing from 17.4% in 2020. One per cent went to conflict prevention, a subset of contributions to peace, representing a decrease from 4.1% in 2020.
Learn more about support to fragile contexts on the States of Fragility platform.
Sectors
In 2021, half of Spain’s bilateral ODA was allocated to social infrastructure and services. Investments in this area accounted for 50.5% of bilateral ODA commitments (USD 768.8 million), with a strong focus on support to health (USD 457.2 million), government and civil society (USD 178.6 million) and education (USD 77.8 million). ODA for economic infrastructure and services totalled 1.6% of bilateral ODA commitments (USD 24.5 million), focusing on banking and financial services (USD 20.2 million), energy (USD 1.7 million) and transport and storage (USD 1 million). Bilateral humanitarian assistance amounted to USD 154.1 million (10.1% of bilateral ODA). In 2021, earmarked contributions to multilateral organisations focused on health, emergency response and government and civil society.
Gender equality
In 2020-21, Spain committed 41.2% of its screened bilateral allocable aid to gender equality and women’s empowerment, as either a principal or significant objective (down from 52.4% in 2018-19, compared with the 2020-21 DAC average of 44.4%). This is equal to USD 376.8 million of bilateral ODA in support of gender equality. The share of screened bilateral allocable aid committed to gender equality and women’s empowerment as a principal objective was 16.1% in 2020-21, compared with the DAC average of 4.5%. Spain includes gender equality objectives in 27.3% of its ODA for humanitarian aid, compared with the 2020-21 DAC average of 17.5%. Spain screens all activities against the DAC gender equality policy marker (100% in 2020-21). Spain committed USD 27.4 million of ODA to end violence against women and girls and 33.5 million to support women’s rights organisations and movements and government institutions in 2020-21. Learn more about ODA focused on gender equality, the DAC Network on Gender Equality and the DAC Recommendation on Ending Sexual Exploitation in Development Co-operation.
Environment
In 2020-21, Spain committed 17.6% of its total bilateral allocable aid (USD 160.7 million) in support of the environment and the Rio Conventions (DAC average of 34.3%), down from 36.0% in 2018-19. Unpacking the environmental data further:
Five per cent of screened bilateral allocable aid focused on environmental issues as a principal objective, compared with the DAC average of 11.3%.
Ten per cent of total bilateral allocable aid (USD 86.6 million) focused on climate change overall (the DAC average was 29.0%), down from 21.6% in 2018-19. Spain had a lesser focus on mitigation (6.6%) than on adaptation (8.7%) in 2020-21.
Six per cent of total bilateral allocable aid (USD 57.7 million) focused on biodiversity (compared with the DAC average of 6.5%), down from 11.3% in 2018-19.
Learn more about climate-related development finance and the DAC Declaration on Aligning Development Co-operation with the Goals of the Paris Agreement on Climate Change.
The OECD initiative Sustainable Oceans for All shows that Spain committed USD 4.3 million in support of the conservation and sustainable use of the ocean in 2021, down from USD 7.6 million in 2020. The 2021 value is equivalent to 0.4% of Spain’s bilateral allocable aid. Learn more about development co-operation in support of a sustainable ocean economy and the data platform on development finance for a sustainable ocean economy.
Committed USD 0.2 million of bilateral ODA to the mobilisation of domestic resources in developing countries, amounting to less than 0.1% of its bilateral allocable aid. Regarding the payment of local tax and custom duties for ODA-funded goods and services, Spain has no general policy on exemptions on its ODA-funded goods and services in partner countries and territories and does not provide information to the OECD Digital Transparency Hub on the Tax Treatment of ODA.
Committed USD 112.3 million (9.9% of its bilateral allocable aid) to promote aid for trade and improve developing countries’ trade performance and integration into the world economy in 2021.
Committed USD 112.3 million (14.9% of its bilateral allocable aid) to address the immediate or underlying determinants of malnutrition in developing countries across a variety of sectors, such as maternal health, water, sanitation and hygiene (WASH) or agriculture.
Committed USD 27.5 million (2.4% of its bilateral allocable aid) to development co-operation projects and programmes that promote the inclusion and empowerment of persons with disabilities.
Spain uses leveraging mechanisms to mobilise private finance for sustainable development. In 2021, The Spanish Ministry of Industry and Energy (via its DFI Cofides) as well as the Ministry of Foreign Affairs, European Union and Cooperation (via Fonprode) mobilised USD 469.3 million from the private sector through direct investment in companies and special purpose vehicles, syndicated loans, shares in collective investment vehicles, and credit lines.
In 2020-21, Spain's 99.6% of mobilised private finance targeted middle-income countries, noting that the remaining 0.4% was unallocated by income. During the same period, the top beneficiary region of this financing was America (90.4% of the total).
Mobilised private finance by Spain in 2020-21 mainly targeted activities in the banking & financial services (51.9%) and communications (29.3%) sectors.
Learn more about the amounts mobilised from the private sector for development.
In 2021, Spain’s Development Promotion Fund (FONPRODE) extended USD 20 million in the form of private sector instruments. Of this, loans represented 50.8%, whereas equities accounted for 49.2%.
In 2021, USD 10.5 million (52.6%) of Spain’s private sector instruments were allocated to middle-income countries. The remainder was unallocated by income (USD 9.5 million), primarily including equity investments to collective investment vehicles with a regional focus.
The top three recipients included Ecuador, El Salvador and Tunisia, together accounting for 42.8% of Spain’s private sector instruments to developing countries in 2021.
In terms of sectoral distribution, 50.8% of Spain’s private sector instruments were extended in support of projects in the banking and financial services, followed by agriculture, forestry, and fishing (44.7%). A share of 5.4% of this financing focused on climate change mitigation and/or adaptation.
Within the Ministry of Foreign Affairs, European Union and Cooperation, the Secretariat of State for International Cooperation sets the strategic orientation of Spain’s development policy. The General Directorate for Sustainable Development Policies steers development policy for the ministry and the Spanish Agency for International Development Cooperation (AECID). AECID is responsible for implementing most of Spain’s co-operation, including bilateral programmes, funding for CSOs and multilateral organisations.
The Ministry of Economic Affairs and Digital Transformation is responsible for debt relief operations and has direct authority over Spain’s contribution to regional development banks and financial institutions. The Ministry of Foreign Affairs, European Union and Cooperation manages Spain’s Development Promotion Fund jointly with the Ministry of Industry, Trade and Tourism. The Ministry of Inclusion, Social Security and Migration manages in-donor refugee costs. Other ministries are also engaged through technical co-operation or contributions to multilateral organisations.
Three other institutions – the International and Ibero-American Foundation for Administration and Public Policies (FIIAPP), Fundación Carolina, and the Spanish Development Finance Corporation – are key actors in implementing Spain’s agenda for knowledge transfer and development finance. Spain’s autonomous communities operate sizeable development co-operation activities.
Around 1 200 staff engage in development co-operation. The Ministry of Foreign Affairs, European Union and Cooperation has less than 50 staff in Madrid. AECID has about 900 staff, of which 51% are in country offices abroad.
An important mechanism for consulting stakeholders is the Development Cooperation Council. CSOs active in development co-operation, humanitarian assistance and global citizenship education co-ordinate through the umbrella body, La Coordinadora.
The Global Partnership for Effective Development Co-operation monitoring exercise tracks the implementation of the effectiveness commitments. Following a reform of the exercise during 2020-22, the 4th global monitoring round (2023-26) has resumed. More detailed results for Spain based on the 2016 and 2018 Monitoring Rounds can be found here. Monitoring profiles for other providers are available here.
2022 OECD-DAC peer review of Spain: https://www.oecd.org/dac/peer-reviews/oecd-development-co-operation-peer-reviews-spain-2022-eed71550-en.htm
Spanish platform for development co-operation: https://www.cooperacionespanola.es/en/secretary-general-development-cooperation (English version)
Ministry of Foreign Affairs, European Union and Cooperation: https://www.exteriores.gob.es/en/Paginas/index.aspx
Spanish Agency for International Development Cooperation (AECID): http://www.aecid.es/EN
CSO umbrella organisation La Coordinadora: https://coordinadoraongd.org (in Spanish)
Spain’s practice on the Development Co-operation TIPs: Tools Insights Practices learning platform: https://www.oecd.org/development-cooperation-learning?tag-key+partner=spain#search
Member of the OECD Development Assistance Committee (DAC) since 1991.
The methodological notes provide further details on the definitions and statistical methodologies applied, including the grant-equivalent methodology, core and earmarked contributions to multilateral organisations, country programmable aid, channels of delivery, bilateral ODA unspecified/unallocated, bilateral allocable aid, the gender equality policy marker, and the environment markers.
Notes
← 1. DAC members adopted the grant-equivalent methodology starting from their reporting of 2019 data as a more accurate way to count the donor effort in development loans. See the methodological notes for further details.
← 2. Non-grants include sovereign loans, multilateral loans, equity investment and loans to the private sector.