When you say 'adhesive' do you mean that you manage to get a nice film which doesn't stick to the substrate? or is it that you have dewetting issues during the spin coating itself which result in non-conformal ZnO layers?
If dewetting is the issue, I would advise to expose your FTO substrates to a surface cleaning and activation process either by using O2 plasma or by an UV induced O3 treatment. Works for us when we need to enhance the substrate's hydrophilicity.
There must be a reaction at the interface for achieving good adhesion between the two layer, Intermixing zone width for the reaction should be narrow so that you can utilise the properties of the top layer. But at the interface there should be a some reaction.