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La cooperación triangular y las MiPymes en la región SICA

A pesar de la creciente utilización del término, en la actualidad, no existe consenso sobre una definición única de la cooperación triangular, trilateral o tripartita. En prácticamente todas las definiciones, el socio receptor corresponde a un país en desarrollo, mientras que existen algunos matices en el perfil de los socios oferentes. La acepción más generalizada es aquella donde un socio oferente aporta recursos económicos -por lo general un país desarrollado o una organización internacional- y el otro socio oferente, denominado “ancla” o “pivote”, aporta recursos técnicos, científicos o humanos -por lo general, un país de renta media (PRM), que de manera conjunta actúan como oferentes sobre un tercer país. Lo cierto es que las dinámicas de la cooperación internacional hacen que estos formatos puedan mutar de las rígidas definiciones de proyecto en proyecto en ejecución.

Cada vez son más frecuentes las conceptualizaciones de la cooperación triangular que hablan de otras modalidades, donde los países anclas también financian parte de las acciones, donde este tipo de cooperación se da entre PRM, o donde participan más de tres actores; o bien con el apoyo de organismos internacionales dentro del sistema de las Naciones Unidas o vinculados a un proceso de integración regional como el de la Unión Europea. Asimismo, más allá de los actores, vale la pena resaltar que la cooperación triangular surge, en gran medida, a partir de acciones exitosas de cooperación bilateral a las cuales se suma el socio triangular (Aguilar Garza, 2015), ya sea para inyectar recursos que aseguren su continuidad o para replicarlas en un tercer país.

La importancia creciente de la cooperación triangular en América Latina y el Caribe se debe a modificaciones importantes en el sistema internacional de la cooperación, entre las que se destacan: 1) Cambios en los flujos de la Ayuda Oficial al Desarrollo (AOD), en donde, América Latina se ha enfrentado a una pérdida de importancia relativa como receptora de cooperación tradicional, por el hecho que la mayoría de las naciones de la región son consideradas PRM; 2) el fortalecimiento de la institucionalidad para la cooperación internacional en la región a partir de la creación de agencias de cooperación con agenda propia para coordinar las acciones de cooperación y que han fomentado la actuación de algunos países como oferentes de cooperación Sur-Sur y/o como socios en la cooperación triangular; 3) el desarrollo de programas de fomento a la cooperación triangular en la región a partir de algunos donantes, como Alemania; España y Japón, que han creado mecanismos o fondos específicos para sostenerla; o desde otros espacios como el Programa Iberoamericano para el Fortalecimiento de la Cooperación Sur-Sur de la Secretaría General Iberoamericana (SEGIB) o la propuesta de escalamiento de proyectos de la Unión Europea; entre otros factores relevantes.

Los países de la Región SICA cuentan, en la mayoría de los casos, con una definición propia de cooperación triangular como se observa en el siguiente cuadro que hemos elaborado junto a Horacio Rodríguez Vázquez:

País Institución Definición de cooperación triangular
Costa Rica Ministerio de Planificación Nacional y Política Económica, Área de Cooperación Internacional. Esta forma de cooperación implica a tres actores: dos países en desarrollo (receptor y ejecutor) y un país desarrollado o un organismo supranacional que actúa, en cualquiera de los casos, como financiador del proyecto.
El Salvador Viceministerio de Cooperación para el Desarrollo, Ministerio de Relaciones Exteriores. La cooperación triangular está definida por la actuación conjunta de dos actores a favor de un tercero. Esta se establece como una relación entre tres actores, donde se evidencia un socio oferente que es un país tradicional, un país de renta media (PRM) que actuará igualmente como socio oferente de cooperación y un socio receptor, que, en la mayoría de los casos, es un país de similar o menor nivel de desarrollo relativo.
Guatemala Secretaría de Planificación y Programación de la Presidencia (SEGEPLAN). Es una modalidad de la cooperación internacional, consistente en la asociación de una fuente bilateral o multilateral, y de un país de desarrollo medio otorgante de cooperación horizontal, para conjuntamente generar acciones a favor de un tercer país en desarrollo, a ser beneficiado.
Honduras Secretaría de Relaciones Exteriores y Cooperación Internacional. La cooperación triangular es el apoyo de un donante tradicional o de un organismo multilateral a la cooperación que realizan dos países en desarrollo. Una ventaja de la cooperación triangular es que el conocimiento, las capacidades y los recursos del Sur y del Norte se combinan para obtener un mejor impacto.
Nicaragua Consejo Nicaragüense de Ciencia y Tecnología (CONICYT). Esta modalidad de cooperación se realiza con dos países en desarrollo (un oferente y un beneficiario) y un tercer país más desarrollado, el cual financiará la cooperación horizontal entre los dos primeros, con el fin de permitir el intercambio y aplicación de las ventajas comparativas presentes en el país oferente.
República Dominicana Ministerio de Economía, Planificación y Desarrollo. Suele ser una combinación de la cooperación horizontal y la cooperación Sur-Sur. En este tipo de cooperación, generalmente, un país desarrollado se asocia con un país de mediano desarrollo (el cual usualmente provee el componente técnico) para ejecutar acciones de cooperación en beneficio de un tercer país de menor desarrollo.
Fuente: Oddone y Rodríguez Vázquez (2016).

Las MIPYMES no han quedado fuera de los proyectos de cooperación triangular ya que la transferencia de buenas prácticas forma parte estructural de este tipo de propuestas. Por ejemplo, Colombia transfirió su Programa Emprende una Micro-Franquicia para una Vida Mejor al personal de la Secretaría de Desarrollo Económico de Honduras (SDE), el Viceministerio de Desarrollo de la Mipyme (MINECO) de Guatemala y el Ministerio de Economía, Industria y Comercio (MEIC) de Costa Rica con el apoyo financiero de la Agencia de Cooperación Alemana (GIZ).

También a modo de ejemplo, y a nivel intrarregional, en el 2014 El Salvador oficio de oferente con el apoyo de la Cooperación Española en República Dominicana con el objetivo de realizar una transferencia de experiencia para la adaptación del modelo Centros de Desarrollo de la Micro y la Pequeña Empresa (CDMYPE) inspirado en el Modelo de Small Business Development Center (conocido como SBDC) en los Centros PYMES de República Dominicana. Esta experiencia constituyó una de las primeras experiencias de El Salvador como oferente de cooperación y este país, comúnmente receptor de cooperación, contribuyó con la difusión del modelo SBDC de la Universidad de Texas en un contexto de mayor amplitud. Se pueden reconocer otras iniciativas como el proyecto de cooperación triangular entre El Salvador-Chile-Alemania sobre “Transferencia de metodologías para desarrollar estrategias y emprendedurismo en El Salvador” que ha tenido mucho éxito en el fortalecimiento de los emprendimientos.

De igual forma, otras experiencias que el Centro Regional de Promoción de la MIPYME (CENPROMYPE) ha identificado y reconocido como buenas prácticas internacionales, como el sistema de compras gubernamentales de República Dominicana desarrollado a través de su Dirección General de Contrataciones Públicas para las compras públicas a las mipymes y las mujeres, ha sido estudiado, sistematizado (“empaquetado”) y está siendo transferido a otros países de la Región SICA con el soporte del Programa de Apoyo al desarrollo del Sector Privado en Centroamérica (ADESEP). En este momento, los Centros de Atención MIPYME se encuentran prestos a recibir la transferencia del modelo de compras públicas mipyme y de las mujeres.

En materia de empresarialidad femenina, se ha reconocido la buena práctica de El Salvador llevada adelante por la Comisión Nacional de la Micro y Pequeña Empresa (CONAMYPE), la cual está siento replicada en la Región SICA con apoyo del financiamiento del Departo de Estados de los Estados Unidos de América y del Gran Ducado de Luxemburgo. En este sentido, la experiencia salvadoreña se convierte en una buena práctica internacional en donde CONAMYPE aporta su expertise técnica y recursos humanos, el Gran Ducado de Luxemburgo presta su apoyo financiero y, a través de CENPROMYPE, se regionaliza un programa de fortalecimiento de la empresarialidad femenina en todos los países del sistema regional. Como demuestra la propia experiencia de CENPROMYPE y la evolución misma de la cooperación triangular pro mipymes con el apoyo del Departamento de Estado de los Estados Unidos, Unión Europea y el Gran Ducado de Luxemburgo, se realizaron los talleres de “Transferencia de metodologías de un nuevo servicio especializado de empresarialidad femenina a través de los Centros de Atención MIPYME de la región SICA”, demostrando que la cooperación ofrece siempre escenarios crecientes de articulación y generación de sinergias.

El elemento central que se comprueba en la Región SICA es que los países logran “regionalizar” la cooperación recibida a partir de la puesta en valor de sus propias experiencias. Por ello, podemos incluso sostener que los países del SICA realizan cooperación Sur-Sur dentro de los sistemas triangulares haciendo sólidos aportes a la integración regional, sobre todo, en aquellas dinámicas que podrían considerarse bottom up (de abajo hacia arriba) cuyo centro de atención está en los territorios y sus actores, en donde las mipymes juegan un papel fundamental en la generación de más y mejor empleo.

 

Bibliografía:

Aguilar Garza, Claudia (2015). Guía orientadora para la gestión de la cooperación triangular en Iberoamérica, Documento de Trabajo No. 8, Programa Iberoamericano para el Fortalecimiento de la Cooperación Sur-Sur.

Oddone, Nahuel y Rodríguez Vázquez, Horacio (2016), “Cooperación Triangular: Perspectivas latinoamericano-caribeñas”, en Rafael Velázquez, Esther Ponce y Simone Lucatello (coord.), Teoría y práctica de la cooperación internacional para el desarrollo: Una perspectiva desde México. Ciudad de México, Asociación Mexicana de Estudios Internacionales, Red Mexicana de Cooperación Internacional y Desarrollo y Centro de Gestión y Cooperación Internacional para el Desarrollo.

 

Nahuel Oddone
Asesor Regional de Entorno de Negocios
CENPROMYPE-SICA

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