Spending Review 2022–2026 - Phase 2

Official Development Assistance

Madrid, 4 February 2026

AIReF Public Expenditure Evaluation Division

Content

1 Quantitative overview of Spanish ODA
2.1 International comparison
2.2 Assessment of ODA effectiveness principles
3 Reception System for International and Temporary Protection
4 Proposals

Pillar 1. Quantitative overview of Spanish ODA

Total disbursements (2021–2023)

EUR 10,847 million

(EUR 3,619 million in 2023)

Channel of delivery

  • Multilateral: 55.7%
  • Bilateral: 32.4%
  • Multi-bi: 11.9%

Geographical destination

  • Africa: 29.6%
  • Americas: 17.7%
  • Europe: 16.7%

Distribution by main ministries (83.4% of total ODA)

Ministry of Finance
40.0%
97% through multilateral channels (EU budget and European Development Fund)
Ministry of Foreign Affairs, European Union and Cooperation
19.1%
Predominantly bilateral (45%), with AECID as the main implementing agency
Ministry of Economy, Trade and Business
12.6%
88% channelled multilaterally through multilateral development organisations (World Bank, IMF)
Ministry of Inclusion, Social Security and Migration
11.7%
100% allocated to in-donor refugee costs

The evaluation has enabled improvements in the qualitative traceability of ODA funds:

  • Unallocated geographically: 62.3% → 21.9%
  • Multi-sectoral: 14% → 7.4%

Pillar 1. ODA by recipient regions.
Ministry of Foreign Affairs, European Union and Cooperation, 2021–2023

Source: AIReF, based on Info@OD.

Pillar 2.1. International comparison

Spain in the context of nine European DAC countries (OECD Development Assistance Committee)

ODA / Gross National Income (2023)

0.24%

2030 target: 0.7% (Act 1/2023)
OECD-DAC average: 0.37%

Relative position

  • Only Sweden reaches 0.7%
  • Germany and the Netherlands: 0.6%
  • Spain: 22nd place among DAC members

Predominant modality

  • Multilateral: ES, PT, IT, BE
  • Bilateral: DE, NL, UK, SE

Spain’s sectoral priorities

Geographical destination

Health; Government and civil society (human rights and gender)

1st place among the countries analysed

South America, Central America and the Caribbean

Spain shows a stronger focus on this region compared to other DAC countries

Weakness

Very limited participation of local NGOs (3.3%) compared to Spanish NGOs (93.4%), indicating a low level of decentralisation

Strength

High share of grants (>95%), well above the DAC recommendation (86%)

Pillar 2.1. International comparison

Priority regions of ODA among donor countries analysed, 2021–2023

Source: AIReF, based on OECD Data Explorer.

Priority regions of Spanish ODA,
2021–2023

Source: AIReF, based on OECD Data Explorer.

ODA by subsectors of Social Infrastructure and Services, 2021–2023

Source: AIReF, based on OECD Data Explorer.

ODA by subsectors of Government and Civil Society,
2021–2023

Source: AIReF, based on OECD Data Explorer.

Pillar 2.2. Assessment of the ODA effectiveness principles

Framework: Paris Declaration (2005) and subsequent summits and forums

Degree of compliance by principle

Ownership MODERATE
Partnerships and networks MODERATE
Alignment MODERATE-WEAK
Leaving no one behind MODERATE-WEAK
Harmonisation WEAK
Mutual accountability WEAK
Managing for results WEAK
Predictability VERY WEAK

Cross-cutting findings

  • Design–implementation gap: solid strategic tools, but limitations in practical application
  • Institutional fragmentation: multiple actors lead to parallel strategies
  • Budgetary volatility: reliance on the annual budget framework limits planning capacity
  • Administrative burden: regulatory complexity constrains alignment with partner countries
  • Weaknesses in monitoring and evaluation

Identified strengths

  • Solid strategic tools (Act 1/2023, Master Plan, Partnership Frameworks)
  • Strong focus on human rights and gender
  • Establishment of the Spanish Cooperation Evaluation Office (OECE)
Methodology: three working groups (third sector, academia and managing authorities), including a diagnostic triangulation process

Pillar 3. Reception System for International and Temporary Protection

Case study: Spain’s Reception System for International and Temporary Protection provides a range of support measures for vulnerable applicants for international protection (fleeing armed conflict or persecution on ethnic, religious, political, gender or sexual orientation grounds, etc.)
Intervention categories within the Reception System for International and Temporary Protection

New entrants to the Reception System for International and Temporary Protection, by type of protection requested

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases.

Spending increased from EUR 80.5 million in 2016 to EUR 271.4 million in 2023

Pillar 3. Reception System for International and Temporary Protection

Beneficiary profile
Beneficiaries of the Reception System for International and Temporary Protection, by sex and age, 2016–2024

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases.

Beneficiaries of the Reception System for International and Temporary Protection, by region of origin, 2016–2024

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases.

Predominant profile: men aged 25–44, mainly from South America, Central America and the Caribbean
(in 2024, Sub-Saharan Africa became the leading region of origin)

Pillar 3. Reception System for International and Temporary Protection

Labour market integration

Beneficiaries of the Reception System for International and Temporary Protection with at least one employment episode since applying for protection, 2016–2023

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases and employment histories (Social Security records).

Beneficiaries of the Reception System for International and Temporary Protection with at least one employment episode since applying for protection, by region of origin, 2016–2023

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases and employment histories (Social Security records).

Job quality

Main activity of beneficiaries of the Reception System for International and Temporary Protection, 2016–2023

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases and employment histories (Social Security records).

Beneficiaries of the Reception System for International and Temporary Protection with an open-ended contract (% of total contracts) since applying for protection, by region of origin, 2016–2023

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases and employment histories (Social Security records).

Share of full-time equivalent months worked by beneficiaries of the Reception System for International and Temporary Protection since applying for protection, 2016–2023

Source: AIReF, based on the analysis of microdata from the SIRIA and ASILO databases and employment histories (Social Security records).

Finding: The evidence suggests that some applicants use the asylum application as an alternative pathway to access the labour market

Proposals

Information systems
Coordination and management
ODA modalities and the Reception System
1. Strengthen the quality, disaggregation and traceability of information, and improve interoperability across data sources
2. Promote the production of administrative microdata from funded programmes
3. Establish data access protocols for evaluation
4. Develop a Results Framework for Spanish Cooperation with comparable indicators
5. Ensure the operational capacity of coordination bodies (Act 1/2023)
6. Strengthen financial predictability (multiannual frameworks)
7. Develop mechanisms to ensure that strategic instruments are translated into concrete interventions
8. Simplify administrative burdens and digitalise processes
9. Increase technical cooperation, budget support and programmatic approaches
10. Implement a multilateral strategy and strengthen triangular and South–South cooperation
11. Establish regular labour migration pathways to streamline the Reception System
Objective: Move towards a more integrated, transparent and results-oriented cooperation system

José Abascal, 2-4, 2nd floor 28003 Madrid
+34 910 100 599
evaluacion@airef.es
www.airef.es/en

Independent Authority for Fiscal Responsibility (AIReF)
@AIReF_es