2002年-世界发展银行全球_Romania___Local_Social_Services_Delivery_Study_Volume_1_Summary_Report_53页_3mb

Summary of Romania Local Social Services Delivery Study (Volume 1)

Core Content

This study examines the process of decentralization in Romania and its implications for the delivery of local social services, particularly in the areas of social assistance and education. It analyzes the institutional, fiscal, and administrative changes that have taken place since the early 1990s and evaluates their impact on the effectiveness of social service provision.

Main Objectives

• To understand the implications of increasing local government autonomy for social service delivery in Romania.
• To document early developments in the decentralization process and identify areas where course corrections may be necessary.
• To provide policy recommendations for improving the fiscal framework, intergovernmental institutions, and service delivery mechanisms.

Key Findings

1.1. Local Governments and Decentralization

• Local governments in Romania are involved in various aspects of social service delivery, including:

  • Financing and managing social assistance programs.
  • Providing cash benefits such as birth grants, emergency assistance, and the Means Tested Social Assistance Benefit (MTSAB).
  • Managing education services, including primary and secondary education.
  • Operating health facilities and managing social assistance institutions.
  • Contracting services with NGOs.

• The Law on Local Public Finance (LLPF), adopted in 1998, significantly restructured the fiscal authority and responsibilities of local governments. It introduced shared taxes, expanded local financing, and redefined roles and responsibilities in public service provision.

1.2. Fiscal Autonomy and Challenges

• The fiscal autonomy of local governments has increased, but the capacity to manage these responsibilities remains limited.
• Local governments face unfunded mandates, where they are assigned new financial responsibilities without corresponding resources.
• Between 1996 and 1999, local expenditures and revenues declined in real terms as a share of GDP, reflecting the macroeconomic instability during the transition period.
• The LLPF has shifted the main source of local government revenue from state transfers to own revenues, particularly through wage tax sharing.

1.3. Institutional and Administrative Context

• Decentralization has been accompanied by changes in institutional arrangements, including the establishment of Judets Education Inspectorate (JEI) and Judets Health Insurance House (JHIH).
• There is a need for clarity of roles and responsibilities, accountability mechanisms, and incentives to ensure effective service delivery.
• The Central Budgetary Execution Center (CEB) plays a key role in managing intergovernmental transfers and ensuring compliance with fiscal rules.

1.4. Implications of Decentralization

• The success of decentralization depends on:
  • Stable intergovernmental institutions.
  • An effective fiscal framework with well-aligned revenue and expenditure responsibilities.
  • Administrative capacity and public participation.
• The European Union (EU) accession process has also influenced the decentralization agenda, with the European Charter of Local Self-Government emphasizing subsidiarity and fiscal equalization.

Policy Implications

• The LLPF has created a more equal legislative basis for local and national finances, but implementation challenges persist.
• Local governments require greater administrative capacity, training, and support to manage their new fiscal responsibilities.
• Shared taxes have been introduced, but their impact on local revenue remains uneven.
• Central government continues to exert control over local finances through frequent changes to the State Budget Law and intergovernmental transfers, which may hinder long-term fiscal stability.

Future Considerations

• Romania's decentralization process is likely to continue due to:
  • Geographic and demographic characteristics.
  • The EU accession process.
  • The need for improved governance and market economy development.
• The study recommends a coherent and strategic approach to decentralization, emphasizing the importance of institutional stability, fiscal transparency, and capacity building.

Conclusion

The study highlights the complexity of Romania's decentralization process and the challenges faced by local governments in delivering social services. It underscores the need for policy coherence, institutional strengthening, and fiscal reform to ensure that decentralization leads to effective and equitable service delivery.

Key Areas of Focus

• Social Assistance: Local governments are responsible for most cash benefits and services, including the MTSAB.
• Education: Local governments manage increasing shares of education expenditures, but central ministries still oversee specialized and post-secondary education.
• Healthcare: Local governments have a limited role, mainly due to the national health insurance system introduced in 1997.
• Fiscal Reforms: The LLPF and amendments to the Law on Local Taxes and Fees have reshaped local finance, but capacity constraints remain a major issue.

Data and Methodology

• The study was based on national survey data, administrative data, and case studies of five judets and Bucharest.
• It uses a mixed-method approach, combining quantitative and qualitative analysis to evaluate the effectiveness of decentralization.

Recommendations

• Strengthen intergovernmental institutions with clear roles and responsibilities.
• Develop a stable and predictable fiscal framework for local governments.
• Enhance administrative capacity and public participation in local governance.
• Align fiscal policies with macroeconomic stability and EU accession requirements.