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Project co-financed by the European Regional Development Fund through Operational Program for
Technical Assistance 2007-2013
REPORT 2.2
Integrated Sustainable Development Strategy
June 2015
ii
This report corresponds to the deliverable "Report 2.2 - Integrated Sustainable Development
Strategy" under the Technical Support Services contract on Danube Delta Integrated
Sustainable Development Strategy between the Ministry of Regional Development and Public
Administration and the International Bank for Reconstruction and Development.
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Contents
Executive Summary .......................................................................................................................................ix I. Introduction ........................................................................................................................................... 1
1. Context for the Strategy ................................................................................................................... 1 2. Coordination with EU and National Policies, Strategies and Documents ......................................... 4 3. Methodology ................................................................................................................................... 16
II. History ..................................................................................................................................................... 23
1. Diagnostic Analysis ...................................................................................................................... 23 2. Vision for the Danube Delta Region ............................................................................................ 29 3. Needs Assessment ...................................................................................................................... 29
III. Strategy .................................................................................................................................................. 36
1. Main themes and directions ........................................................................................................... 36 2. Spatial Distribution ......................................................................................................................... 47 3. Summary of Sector-Specific Priorities and Cross-Sectoral Synergies ............................................. 51 Pillar I: Protecting the Environmental and Natural Resource Assets ...................................................... 52
Biodiversity and Ecosystem Management .......................................................................................... 52 Energy Efficiency .................................................................................................................................. 61 Climate Change .................................................................................................................................... 64 Disaster Risk Management (DRM) ....................................................................................................... 68
Pillar II: Improving the Economy ............................................................................................................. 72
Tourism ................................................................................................................................................ 72 Fishery and aquaculture ...................................................................................................................... 79 Agriculture and Rural Development (ARD) .......................................................................................... 84
Pillar III: Improving Connectivity ............................................................................................................. 93
Transport ............................................................................................................................................. 93 Information and Communication Technology (ICT) ............................................................................ 99
Pillar IV: Providing Public Services ......................................................................................................... 102
Water supply and sewerage systems (WSS) and integrated water management (IWM) ................. 102 Solid Waste Management (SWM) ..................................................................................................... 108 Healthcare ......................................................................................................................................... 114 Education ........................................................................................................................................... 121 Social Inclusion and Protection .......................................................................................................... 126
Pillar V: Promoting Efficiency, Affordability and Sustainability............................................................. 130
Administrative Capacity and Program Management ........................................................................ 130 Implementation of the agreements and the M&E mechanism......................................................... 138
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IV. Annexes................................................................................................................................................ 150 Annex 1. Definitions of the Areas .......................................................................................................... 150 Annex 2: Applying the Participatory Approach ..................................................................................... 152 Annex 3: Application of the Prioritization Principles – Example for Illustration Purposes Only .......... 154 Annex 4: Integration tables between the OPs and the axes within the OPs ........................................ 156
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Figures
Figure 1: Current functional structure of the Danube Delta Region ........................................................... ix Figure 2: The vision motivates the strategic objectives, which cascade down to the Five Pillars. .............. xi Figure 3: Estimated job growth in the nature-based tourism and recreational fishing industries is expected to reach 42 percent, in a best case scenario. .............................................................................. xiv Figure 4: Estimated annual gross revenue per fisher and cherhana in the Danube Delta. ........................ xiv Figure 5: While mobile phone penetration level is relatively high, access to internet and computer ownership are low ...................................................................................................................................... xv Figure 6: A large proportion of the households' income is spent on public services ................................. xvi Figure 7: Polycentric perspective of the Danube Delta Region ................................................................ xviii Figure 8: Comparison of yearly GDP growth among Tulcea and neighboring counties ............................. 24 Figure 9: Formal Sector Employment by Locality (2013) ............................................................................ 25 Figure 10: The core Delta has much lower access to basic services than the Study Area and the rest of the country .................................................................................................................................................. 27 Figure 11: Tourism and accessibility were the most frequently raised issues by communities among the crowd-sourced project ideas answering questions such as "where do you want your community and the Delta to be in 2030" and "what are the opportunities and constraints" during the visioning exercise. ... 29 Figure 12: The Strategy is Structured into Five Vertical Pillars and is Guided by Five Strategic Principles.40 Figure 13: Functional structure of the Danube Delta Region ..................................................................... 48 Figure 14: Polycentric perspective of the Danube Delta Region ................................................................ 51 Figure 15: Current floods situation ............................................................................................................. 68 Figure 16: The current tourism situation .................................................................................................... 75 Figure 17: The current fisheries situation ................................................................................................... 80 Figure 18: The current agricultural situation .............................................................................................. 87 Figure 19: Transport Networks in Tulcea County ....................................................................................... 94 Figure 20: The current situation of water supply, sanitation and integrated water management .......... 104 Figure 21: The current solid waste management situation ...................................................................... 109 Figure 22: The current situation and proposals to modernize the health system in Tulcea .................... 116 Figure 23:Institutional Agreements .......................................................................................................... 140 Figure 24: Key evaluation criteria within the project Log frame matrix ................................................... 144 Figure 25: Map of the Danube Delta Biosphere Reserve (DDBR) ............................................................. 150 Figure 26: The Danube Delta Area ............................................................................................................ 151
Tables
Table 1: Prioritization Criteria ..................................................................................................................... 18 Table 2: The Vision informs the Strategic Objectives, which cascade down into the five Pillars ............... 30 Table 3: Summary of Key Needs by Sector ................................................................................................. 31 Table 4: Examples of proposed approaches and action plans for sustainable development of the Danube Delta region, based on the integration of the main themes and guiding principles .................................. 41 Table 5: Biodiversity and Ecosystem Management: Types of Priorities and Justification ......................... 54 Table 6: Energy Efficiency - Priority Types of Intervention/Justification .................................................... 63 Table 7: Climate Change: Types of Priorities and Justification ................................................................... 65 Table 8: DRM - Priority Types of Intervention and Justification ................................................................. 69 Table 9: Pollution emergency: - Types of Priorities and Justification ......................................................... 71 Table 10.Tourism: Types of Priorities and Justification .............................................................................. 75
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Table 11. Fishery and Aquaculture: Types of Priorities and Justification ................................................... 80 Table 12. Agriculture and Rural Development: Type of intervention and Justification ............................. 87 Table 13. Transport: Type of intervention and Justification ....................................................................... 94 Table 14. ICT: Type of intervention and Justification ................................................................................. 99 Table 15. Water supply and sanitation systems: – Type of intervention and Justification (according to the prioritization made under the PNDL) ........................................................................................................ 104 Table 16. Solid Waste Management: Type of intervention and Justification ........................................... 110 Table 17. Healthcare – Type of intervention and Justification ................................................................. 116 Table 18. Education: Type of intervention and Justification .................................................................... 122 Table 19. Inclusion and Social Protection: Type of intervention and Justification ................................... 127 Table 20. Administrative Capacity and Program Management – Type of Intervention and Justification 132 Table 21: ITI IDA responsibilities ............................................................................................................... 141 Table 22. Section 1 – Relevance ............................................................................................................... 145 Table 23: Phase 2 – Feasibility .................................................................................................................. 146 Table 24: Efficiency ................................................................................................................................... 146 Table 25: Phase 3 – Utility ......................................................................................................................... 147
Boxes
Box 1: The Study Area in Numbers ............................................................................................................. xii Box 2: Territorial Integration Crosses Administrative Boundaries: the Four Constanța communes. ......... 39
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Abbreviations and acronyms
WSS WBA DA CDA CDA - ITI ARD PHC NA NARW PAFR DDBRA TA EC TCC MBW NR PHD EE EVT PEC SEA EAFRD EAGF ESFRI FLAG GHG FWG TRACE SME NIHWM ESI ITI LLL MARD MRDPA SWM MEF MEWF DRM DMO CAP ESDP EIP NRDP OP
Water Supply and Sanitation Water Basin Administration Diagnostic Analysis Community Development Association Community Development Association - Integrated Territorial Investment Agriculture & Rural Development Primary Health Care Needs Analysis National Administration Romanian Waters Preliminary Analysis of Flood Risks Danube Delta Biosphere Reserve Administration Technical Assistance European Commission Tulcea County Council Municipal Biodegradable Waste National Road Public Health Directorate Energy Efficiency Education and Vocational Training Preschool Education and Care Strategic Environmental Assessment European Agricultural Fund for Rural Development European Agricultural Guarantee Fund European Strategy Forum On Research Infrastructures Fisheries Local Action Groups Greenhouse Gases Functional Working Groups Tool for Rapid Assessment of City Energy Small and Medium Enterprises National Institute of Hydrology and Water Management Emergency Situations Inspectorate Integrated Territorial Investments Lifelong Learning Ministry of Agriculture and Rural Development Ministry of Regional Development and Public Administration Solid Waste Management Ministry of European Funds Ministry of Environment, Waters and Forests Disaster Risk Management Destination Management Organization Common Agricultural Policy European Spatial Development Perspective European Innovation Partnerships National Rural Development Program Operational Program
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ITI OP LIOP ROP PPP DDBR LEER LCCR UAA CC DDISDS WWTP FS GIS IDMIS IWMS SMURD WTP ICT VAT EU PIU UNESCO SRA
Integrated Territorial Investments Operational Program Large Infrastructure Operational Program Regional Operational Program Public-Private Partnership Danube Delta Biosphere Reserve Local Energy Efficiency Recommendations Local Climate Change Recommendations Utilized Agricultural Area Climate Change Danube Delta Integrated Sustainable Development Strategy Wastewater Treatment Plant Feasibility Studies Geographic Information System(s) Integrated Disaster Management Information System Integrated Water Management System Mobile Emergency Service for Resuscitation and Extrication (Serviciul Mobil de Urgență, Reanimare și Descarcerare) Water Treatment Plant Information & Communication Technology Value Added Tax European Union Project Implementation Units United Nations Educational, Scientific and Cultural Organization Specific Restriction Areas
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Executive Summary
The proposed strategy strikes a balance between protecting the unique natural and cultural assets of
the Danube Delta Biosphere Reserve (DDBR) and meeting the aspirations of the region's inhabitants to
improve their living conditions and seek better economic opportunities.
Figure 1: Current functional structure of the Danube Delta Region
The Strategy was developed through a systematic technical analysis and a participatory process. In
2013, the Government of Romania - through the Ministry of Regional Development and Public
Administration (MRDPA) - requested the World Bank to provide advisory services to assist in elaborating
an integrated sustainable development strategy for the Danube Delta and its neighboring area (the
Danube Delta Region)1, with horizon 2030, and to prepare an action plan to implement such a strategy2.
1 Danube Delta (DD) is the area referred to as: Danube Delta Biosphere Reserve (DDBR). It covers: (i) the Core Delta
(the area between branches Sf. Gheorghe and Chilia of the Danube river); (ii) Razim-Sinoe-Babadag lagoon complex and the surrounding areas; and (iii) the area along the Danube river, west of the Tulcea city, towards Galați. The study area - called the Delta Danube region - covers DDBR and its surrounding areas; the study area includes Tulcea municipality, four towns (Babadag, Isaccea, Măcin and Sulina) and thirty-two communes (the total number of communes in Tulcea is 46). Four communes (Corbu, Istria, Mihai Viteazu and Săcele) being part of the territorial-administrative unit of Constanța County, all four being adjacent to the Razim-Sinoe lagoon complex. See
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The strategy development started with the preparation of a Diagnostics Report with initial consultations,
analyzing the current situation, opportunities and constraints. The report pointed to the dual challenge
of protecting the environment and improving livelihoods in the region.
A vision and strategic objectives were defined subsequently. A vision for the Region was derived
through additional consultations with the local communities and authorities, as well as representatives
of central government units and other stakeholders and NGOs. Consultative workshops were held in
eight locations in the region, with a total of more than 300 participants from communes and towns/city
across the region. These were followed by two similar workshops in Bucharest, one with young people
who had left the Delta for education or jobs, and one with technical representatives of the Inter-
institutional Committee for the program. Special attention was paid to balancing "bottom-up" and "top-
down" views.
The Vision for the Danube Delta Region (2030) was defined as: an attractive area - with precious
biodiversity and vibrant business environment, with small/medium scale economic activities both in
traditional and modern fields - where people live in harmony with nature; integrating economies of
tourism, farming and fishery; and supported by urban service centers. This was derived from the
following visions defined for the two sub-areas of the region - the biosphere reserve and the
neighboring area - due to their different characteristics. Vision for the Danube Delta (the Biosphere
Reserve area): a "living delta" (an area where people live and work), with balanced support for the
environment and the community; a healthy, sustainable local economy - mainly based on nature and
culture tourism; and with an inclusive planning process (residents, governments, businesses). Vision for
the Neighboring Area: a vibrant agricultural and business area, with a network of urban service centers
and a tourism sector that is integrated with the attractions of the area and the Delta.
Two strategic objectives were derived from this agreed vision:
(1) conserve the unique environmental assets through scientifically-guided environmental
management, and by empowering local communities to be proactive guardians of this unique
global heritage; and
(2) develop a green and inclusive local economy3, based on sustainable consumption and
protection, resource efficient, capitalizing on the area's comparative advantages, supported by
improved public services.
The vision and the strategic objectives provided direction for the preparation of this Strategy Report,
Annex I for maps. 2The World Bank team developed the draft strategy in close collaboration with all stakeholders; it was further
discussed with MRDPA and the other relevant institutions and it was revised following the comments received. This final version is planned to be submitted for approval by Government Decision. An overview of the expected results and timetable for advisory services is shown in Annex II. 3 An economy that results in improved human well-being and social equity, while reducing environmental risks
significantly and preventing the loss of biodiversity and ecosystem services. A green economy can be considered of as one which is low in carbon, efficient in terms of resources and social inclusion. (UNEP Green Economy Initiative)
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building on a comprehensive Needs Assessment by sectors, which defined the needs for physical
investments, policy and regulatory reforms, institutional development, and technical assistance.
The Strategy has five pillars, derived from the strategic objectives. They correspond to the five pillars4
under which the sector analyses in the earlier needs assessment were grouped. Examples of
recommended priority interventions from the study are indicated under each pillar below.
Figure 2: The vision motivates the strategic objectives, which cascade down to the Five Pillars.
4 A fifth pillar "Promoting efficiency, accessibility and sustainable development" is transversal and it was adopted
as one of the guiding principles for the development of the strategy.
Strategic Objective no. 1: Conserve the
unique environmental assets through
scientifically-guided environmental
management and by empowering the
local communities to be proactive
guardians of this unique global heritage.
Pillar I; Protecting the
Environmental and
Natural Resource Assets
Strategic Objective no. 2: Develop a green and
inclusive local economy, based on sustainable
consumption and protection, resource efficient,
capitalizing on the area's comparative
advantages, supported by improved public
services. Pillar II:
Improving the
Economy
Pillar III:
Improving
Connectivity
Pillar IV:
Providing
Public
Services
Pillar V: Promoting Efficiency, Affordability and Sustainability
(including Administrative Capacity of Local Authorities
and Technical Assistance for Program Implementation
Vision:
an attractive area with
precious biodiversity and vibrant
business environment, with small/medium scale economic activities both in traditional
and modern fields -
where people live in harmony with nature;
integrating economies of tourism, farming and fishery;
supported by urban service centres.
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Pillar 1: Protecting the environmental and natural resource assets. The region's main comparative
advantage is its environmental wealth. While posing a constraint to some economic activities, it also
provides opportunities for bringing greater prosperity to the region, through income generation based
mainly on non-consumptive use of the living natural resources and preservation of local cultural
traditions. Restoring the natural environment and improving the management of the environmental and
natural resource assets represent a critical first step. Over the longer term, sustainability will depend on
local residents playing an active role as guardians and managers of the Delta's environmental and
cultural assets in partnership with the Danube Delta Biosphere Reserve Administration (DDBRA).
Reducing the threat of unsustainable resource consumption, including fishing, needs to rely on
cooperative solutions that provide incentives to residents to safeguard the local assets. This generally
means providing some level of "ownership rights", accompanied by responsibility and accountability5. All
activities promoted in the Danube Delta Region need to be in harmony with the guidelines to be laid out
in a strategic environmental assessment and the rules governing the biosphere reserve, as well as to
address threats from climate change proactively.
Example suggested interventions: hydrological modelling; de-silting; ecological restoration; dredging;
flood protection; signage; energy efficiency initiatives; monitoring system; and institutional reform and
strengthening.
Box 1: The Study Area in Numbers
Population (Census 2012)
Tulcea County 201,500
Study Area (Danube Delta Region) 184,000
Of which in the Core Delta 10,700
In the neighboring area: 173,300
Within the Study Area:
Tulcea City 73,700
4 towns (Babadag, Isaccea, Măcin and Sulina) 4,000 – 9,000
29 communes in Tulcea county (of 46) 500 – 5,900
Of which in the Core Delta (7 communes) 500 – 2,100
in the neighboring area 1,100 – 5,900
4 Communes in Constanța County 2,100 – 5,700
Area
Tulcea County 8,499 km2
of which
5 Granting "ownership rights" to residents must be accompanied by institutional structures that provide
opportunities and mechanisms for their participation in making decisions with an effect on them. This will apply in addition to the environmental management.
xiii
Study area 7206.6 km2
Total Biosphere Reserve (the Delta), including sea area 6,250 km26
of which in Romania 5,800 km27
in Ukraine 450 km2
Neighboring Area (about 50% of the Study Area)
Distances
Tulcea City - Bucharest 267 km
Tulcea City - Constanța 125 km
Tulcea City - Sulina 67 km (on water)
Pillar II: Improving the economy. The environmental and cultural richness and diversity of the region
bring economic opportunities to the tourism industry, with co-benefits to local fisheries and
aquaculture, agriculture and small business such as handicrafts. With more diversified attractions and
nature programs, not only the number of tourist, but also the duration of their stay, will increase and
provide revenue to local residents, both within the Biosphere Reserve (particularly in the core Delta) and
its neighboring cities/towns and communes. Preservation of the region's tangible and intangible cultural
heritage assets - traditions, arts, cuisine and cultural sites and events - can add to the distinctive
positioning of the region as a travel destination and product branding. Special efforts are needed to
further integrate minority groups in the society and preserve their related cultural heritage. To address
affordability constraints, economic opportunities and jobs need to be generated, with support ranging
from skill development and in-job training to small grant schemes for microenterprises, including small
agricultural and fish processing supporting tourism. Advisory services will guide farm consolidation and
modernization and prepare small pension/hotel owners to cater to higher-end tourism. Incentives to
small pilot businesses can be provided, including an appropriate evaluation framework to enable
learning and replication.
Example suggested interventions: visitor infrastructure; beautification efforts; small grant facilities;
tourism training; destination management organization; support for rural infrastructure modernization;
support for aquaculture, recreational fishing, and small scale fish processing (canning, smoking); support
for the development of business in non-agricultural areas (e.g. tourism, handicraft/craft products,
renewable energies).
6 Of which the Tulcea County (87.73%); Constanța County (12.13%); Galați County (0.14%)
7 2.5% of Romania
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Pillar III: Improving connectivity. Improved connectivity to enhance movement of people, goods and
information will bridge the divide between cities and remote locations and lagging and leading regions
(e.g. Constanța, one of the country's growth poles) as well as within the region (e.g. between the Core
Delta and the surrounding areas). An improved ICT infrastructure and a more rapid movement will
support tourism development. It will also improve business opportunities by connecting sellers to
markets and create opportunities for more innovative service delivery in health and education.
Example suggested interventions: upgrading of roads (various county and communal roads);
modernization of Tulcea port and airport; improved transport on waterways; increased access to broad-
band internet.
Figure 3: Estimated job growth in the nature-based
tourism and recreational fishing industries is
expected to reach 42 percent, in a best case
scenario.
Figure 4: Estimated annual gross revenue per fisher
and cherhana in the Danube Delta.
Source: Authors' estimation formed from field research in
the Study Area, as well as using 2011 Census Data,
Eurostat and Independent Studies
Notes: Assumed approximately half of the estimated 10,000
million ton total catch by recreational and family fishing. *
1,488 Licenses; ** Less First Sale Value; *** 50 Cherhanas.
Source: Authors' estimation from field research.
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Figure 5: While mobile phone penetration level is relatively high, access to internet and computer ownership are
low
Source: WB, Study Area Household Survey
Pillar IV: Providing public services. Access to basic urban services (water, sanitation and waste disposal),
health facilities and schooling in the region is uneven as is their respective quality. Addressing these and
other service gaps will support tourism development, and improving the services will, partly by the use
of ICT, be essential to improve health and social mobility. Basic services need to be provided at the
lowest cost, which will require innovative approaches. For health, it will mean reliance on preventive
"doctors-on-visit" (medical caravan) health provision, and ICT-based consultations and shelter next to
the hospital. For education, it means consolidation of schools, as applicable, with commensurate
transport options and virtual classrooms for remote locations. For water and wastewater, it entails low-
cost easily maintainable and affordable technologies, for which there is clear demand and willingness to
pay. As cost-recovery regulations move to more market-based principles, appropriate social safety nets
need to be established to safeguard the well-being of the disadvantaged segments of the population. In
terms of social inclusion, integrated interventions will be considered to address issues related to
education, health, social work, housing and employment, particularly for disadvantaged areas, with a
high percentage of Roma population.
Example suggested interventions: rehabilitation of water supply systems; low cost collection and
treatment of waste water; enhanced waste management system supporting waste separation/selection;
improved access and response capacity in health sector; telemedicine; support for lifelong learning,
vocational schools linked to labor markets, and early childhood education and care; distance learning;
ensuring access of underprivileged sections of the population to education, health, housing and
employment; development of social enterprises.
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Pillar V: Promoting efficiency, affordability and sustainability. Further empowering local authorities to
develop and oversee public service delivery is an essential factor that would help the development of
the Study Area. The alternatives to local authorities (concessions, outside institutions etc.) are less
accountable to the beneficiaries from these investments. If neither households, nor local governments
can sustain the level of local services in the area, the supplemental finance through targeted subsidies
needs to be provided by the central government, or services need to be tailored to affordable levels.
Not only local authorities, but the capacity of all institutions to administer the type and scale of projects
envisaged needs to be strengthened. Limited budgetary resources and challenges in retaining staff in
remote areas (e.g. in the health and education sectors) has put stress on the administrative systems. The
need for effective coordination of interventions will present additional administrative demands on
beneficiary institutions, and some new organizations are proposed to be established (for example, a
destination management organization for the tourism sector). A comprehensive program on capacity
building and technical assistance will need to be administered, that is supportive of future functions,
incentives and accountabilities.
Example suggested interventions: technical assistance for administrative capacity improvement,
technical assistance for program management, design of household subsidies, development of online
services.
Figure 6: A large proportion of the households' income is spent on public services
Source: WB, Study Area 2014
The proposed Draft Strategy will guide the territorial integration of the Danube Delta Region. The five
strategic pillars demonstrate complementarity. The tourism potential will remain constrained unless
urban services (water, sanitation and waste collection) and tourism infrastructure are improved.
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Services such as health and education will rely increasingly on virtual communication tools (ICT). More
tourism benefits will emerge, once more attractions and recreational fishing, aquaculture, organic
farming, guided tours, etc. are developed. Since the natural and cultural assets are the key attraction of
the region, restoring, protecting and enhancing them is of utmost priority. Beyond integration and
synergies across sectors through the broad-based planning process, links between physical investments,
policy and regulatory changes, and institutional development and technical assistance enhances benefits
and sustains assets. The Strategy defines key types of interventions/projects within each sector, and
how they complement and enhance each other as an integrated territorial development program. The
projects are linked to financial resources allocated by the government through the ITI instrument and to
other sources of funds. As the proposed development will require unprecedented efforts and an ability
of residents and local authorities to reinvent themselves, sizeable technical assistance needs to be
provided.
A number of trade-offs were made, the main one being to provide directions for economic
development without causing undue impact on the environment, particularly in the Delta. More
specifically, for example, facilitate tourism, fishing and water transport by dredging and other works,
while enhancing the biodiversity assets in the wetland by bringing it back to more natural flows; improve
access for the population in the Delta by rehabilitating existing roads (not building new ones); seek
affordable water and sanitation solutions for villagers with financial ability for local authorities to
operate and maintain; limited strategic emphasis on commercial fishing versus transition towards
higher-value recreational fishing; and more focus on support for improvement of existing
accommodations than new ones as part of the proposed small-scale nature-and-culture based tourism,
until the demand will warrant expansion. Additional trade-offs (prioritization) due to investment funding
constraints may need to be made during the forthcoming preparation of action plans.
Many interventions contribute to further spatial integration across the region, through transport
improvements, further economic integration (tourism, agriculture, fishery) and some centralized service
provision (e.g. proposed telemedicine, distance learning, operations and maintenance of water and
sanitation services). Specifically: (i) the DDBR draws visitors to the whole region (tourism destination),
while the neighboring area supports the DDBR with its stronger economies; (ii) the main urban/service
centers will be more connected; and (iii) and the urban-rural linkages will be strengthened, particularly
through the tourism-induced economic integration mentioned above, and through service integration
(accommodation facilities, signage, guided tours, etc.). All areas of the region will be represented in a
destination management organization/mechanism for the continued tourism development.
xviii
Figure 7: Polycentric perspective of the Danube Delta Region
The Vision and Strategy with target 2030 provides a framework for an ITI Proposal and Action Plan for
implementation by 20208 - but all defined needs cannot be fully addressed by 2020. While the defined
vision and the outlined strategy have the horizon 2030, it will initially be used as input for a proposed ITI
investment program and an even broader action plan for implementation through 2020. To be realistic,
this will require significant prioritization and sequencing of interventions, taking sustainability and
affordability considerations into account. The Draft Strategy will be complemented and "vetted" by a
Strategic Environmental Assessment , and followed by a detailed ITI Proposal with an action plan for
phased implementation of eligible investments (details at priority projects level, with dedicated funding
from the OPs). A full Action Plan will then be prepared, including interventions that are not eligible for
ITI funding. These plans will describe prioritized projects further and help operationalize their
implementation with further specification of sequencing, implementation arrangements, and
monitoring and evaluation systems (including indicators).
8 Possibly until 2022, if the EC will grant an extension similar to that given in the previous programming period.
I. Introduction
1. Context for the Strategy
In September 2013, the World Bank was contracted to provide advisory services to the Government of
Romania for the preparation of a strategy for the Danube Delta and its surrounding communes9. The
main objective of the ongoing services is to assist in planned and environmentally-sensitive
development of the Danube Delta Region, an ecologically rich but also economically challenged region
of Romania.
This strategy will contribute to the protection and the sustainable development of the Danube Delta, a
region of global conservation significance. The Delta hosts extraordinary biodiversity and provides
important environmental services. It is the largest remaining natural delta in Europe and one of the
largest in the world.
The Danube Delta is the second largest delta and the best conserved delta in Europe, featuring an
impressive diversity of habitats and life forms (wildlife) which it hosts. Danube Delta is included, since
1992, in the list of UNESCO World Cultural and Natural Heritage, being the only delta with biosphere
reserve status in the world. Danube Delta Biosphere Reserve encompasses the delta itself (2,540 sq km
in Romania), Razim-Sinoe lake complex, marine waters up to the 20 m isobath, the Danube riverbed
between Cotul Pisicii and Isaccea and the Danube floodplain between Isaccea and Tulcea, with a total
area of over 5,000 square kilometers.
NATURA 2000 network at the Delta level includes:
- Danube Delta SPA site and Razim-Sinoe complex (ROSPA0031), which hosts over 250 protected bird
species, of which 97 are contained in Annex 1 of Directive 79/409/EEC, 151 are contained in the Annex
to the Bonn Convention on Migratory Species and 17 globally threatened species;
- Black Sea SPA site (ROSPA0076) - is also an attractive habitat for many species of (sedentary and
passage) migratory birds, being an important migration corridor for the herds in Northern Europe;
- Danube Delta SCI site (ROSCI0065) - has an unique deltaic ecosystem in Europe and even globally, by
the diversity of biotypes and resources, influenced by the Danube water and its deposits.
This also stands out thanks to the ethno-cultural diversity (Romanians, Lippovan Russians, Ukrainians,
Roma, Greeks, Turks, Bulgarians etc.), by traditional crafts and by the length of residence in the territory.
9 Danube Delta (DD) is the area referred to as: Danube Delta Biosphere Reserve (DDBR). It covers: (i) the Core
Delta (the area between branches Sf. Gheorghe and Chilia of the Danube river); (ii) Razim-Sinoe-Babadag lagoon complex and surrounding areas; and (iii) area along the Danube river, west of the Tulcea city, towards Galați. The study area - called the Delta Danube region - covers DDBR and its surrounding areas; the study area includes Tulcea municipality, four cities (Babadag, Isaccea, Măcin and Sulina) and thirty-two communes (the total number of communes in Tulcea is 46). Four communes (Corbu, Istria, Mihai Viteazu and Săcele) are part of the territorial-administrative unit of Constanța County, all four being adjacent to the Razim-Sinoe lagoon complex. See Annex 1 for a map of the region.
2
The most significant physical and ecological feature of the DDBR is its vast expanse of wetlands,
including freshwater marsh, lakes and ponds, streams and channels. Only 9% of the area is permanently
above water. Life for the 10,000 residents of the core Delta is challenging and access to essential social
and economic services is limited. Water transport is often the only option to reach and travel from
destinations in the core Delta. The area also has lower access to basic services, such as piped water and
sewerage, than the neighboring rural areas. Health and education services are also constrained by
inaccessibility and decreasing population.
An extensive diagnostic analysis of the prevailing situation with respect to access to basic services,
opportunities for job creation and growth, and constraints to development was carried out. The
diagnostic analysis was complemented with findings from participatory consultations with local
residents and stakeholders on their vision of how a future Danube Delta Region would look like. Issues
discussed at the meetings were compiled in the Vision. In the Needs Assessment Report, the necessary
changes to be made in order to achieve the strategic goals established and to turn the vision into reality
were identified.
This Strategy is the next step in the process of planning interventions in the Danube Delta Region,
presenting key development directions (objectives, measures, types of intervention). The Needs
Assessment (NA) identified measures and interventions to achieve the overarching strategic objectives
and underlying sector-specific objectives. The Strategy identifies the recommended priority areas of
intervention and key projects from the study, within each sector based on criteria of expected impact
towards the strategic objectives, geographical breadth, level of preparedness, and financial and
administrative sustainability. It suggests links to financial resources allocated through the ITI instrument.
The Draft Strategy builds towards the Vision, which was elaborated through an extensive consultation
process.
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Vision Statement and Strategic Objectives, Danube Delta Region (2030)
Two strategic objectives were derived from this vision:
Strategic Objective no. 1: Conserve the unique environmental assets through scientifically-guided
environmental management, and by empowering the local communities to be proactive guardians of
this unique global heritage.
Strategic Objective no. 2: Develop a green and inclusive local economy, based on sustainable
consumption and protection, resource efficient, capitalizing on the area's comparative advantages,
supported by improved public services.
Vision for the Danube Delta (the Biosphere Reserve area):
A "living delta" (an area where people live and work) with balanced support for the
environment and the community; a healthy, sustainable local economy - mainly based on
nature and culture tourism; and with an inclusive planning process (residents, governments,
businesses).
Vision for the Neighboring Area:
A vibrant, modern agricultural and small enterprise area, with a network of urban service
centers and a tourism sector that is integrated with the attractions of the area and the
Delta.
Together, they form the Vision for the Danube Delta Region (2030):
An attractive area - with precious biodiversity and vibrant business environment, with
small/medium scale economic activities both in traditional and modern fields - where
people live in harmony with nature; integrating economies of tourism, farming and fishery;
and supported by urban service centers.
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2. Coordination with EU and National Policies, Strategies and Documents
Coordination with EU Policies, Strategies and Documents
At EU level, territorial cooperation and flows of technology, goods and capital are critical aspects of
development and key factors for supporting sustainable development. The article 3 of the Lisbon
Treaty (2009) highlights that EU promotes economic, social and territorial cohesion in response to
the challenges of globalization, climate changes, demographic changes, safety and energy. The EU
objectives defined in the Europe 2020 Strategy for smart, sustainable and inclusive growth can only
be achieved if the territorial dimension of the strategy is taken into account, as the development
opportunities of different regions vary.
Europe 2020 targets assumed by Romania and to which it must contribute are:
employment rate of the population aged 20 to 64 years of 75% (RO 70%);
level of investment in research and development of 3% of the European Union GDP (RO
2%);
20/20/20 target on energy and climate change:
- emissions of greenhouse gases 20% below the level recorded in 1900 (RO 20%)
- 20% of the energy produced coming from renewable sources (RO 24%)
- 20% increase in energy efficiency (RO 19%)
early school leaving rate below 10% (RO 11.3%)
proportion of young people aged 30 to 34 years, graduates of tertiary education, of at
least 40% (26.7%)
decrease in the number of people exposed to poverty by 20 million (RO 580,000).
Under this Strategy, seven initiatives were proposed as working instruments:
An "Innovation Union" is aimed at reorienting research, development and innovation policy
towards major challenges, while closing the gap between science and market launch, so that
inventions could be turned into products. This initiative aims to improve framework
conditions and access to finance for research and innovation, so as to ensure that innovative
ideas can be turned into products and services that create growth and jobs;
"Youth on the Move" is aimed at increasing the international quality and attractiveness of
Europe's higher education system, by promoting student and young professional mobility. As
a concrete action, vacancies in all Member States should be more accessible throughout
Europe, and professional qualifications and experience should be recognized properly. This
will enhance the performance of education systems and will facilitate the entry of young
people into the labor market;
"A Digital Agenda for Europe" is aimed at providing certain sustainable economic and social
advantages through a digital single market based on ultra-fast internet; all Europeans should
have access to high speed internet by 2013. Thus, the focus is on accelerating the
development of high-speed internet services and on capitalizing the benefits offered by a
digital single market to households and companies;
"A resource-efficient Europe" is aimed at supporting the shift towards an efficient use of
resources, with low carbon emissions. Europe must maintain the "20/20/20 targets" in
terms of production and consumption of energy and energy efficiency. The initiative allows
the detachment of economic growth from resource use, to support the transition to a low
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carbon economy, to increase the use of renewable energy sources, to modernize the
transport sector and to promote energy efficiency;
"An industrial policy for the globalization era" is aimed at supporting the competitiveness of
the EU industrial base in the post-crisis world, promoting entrepreneurship and the
development of new skills. Thus, there will be an improvement in the business environment,
especially for SMEs, the development of a strong and sustainable industrial base able to
compete globally will be supported and millions of new jobs will be created;
"An agenda for new skills and jobs" is aimed at creating the conditions for modernizing
labor markets, and the provision of a greater autonomy to people, by developing their skills
throughout their life, in order to increase labor participation and to have a better match of
labor supply and demand, including through labor mobility. The purpose of this initiative is
to increase the employment rates and to ensure sustainability of the European social
models, given the retirement of the "baby-boomers";
"European Platform against Poverty" provides the appropriate framework to ensure
economic, social and territorial cohesion, so that the benefits of growth and jobs to be
distributed fairly, and people experiencing poverty and social exclusion be given the
opportunity to live in dignity and to play an active role in society.
The formulation of the strategy for the Danube Delta Region (the Region) subscribes to the
principles and priorities of EU policies, which create the framework for a regional territorial policy
aimed at the sustainable development of the Region. The following documents represent the EU
context for the development of the Danube Delta Integrated Sustainable Development Strategy
(DDIS).
Territorial Agenda 2020 ‐ Towards an Inclusive, Smart and Sustainable Europe of Diverse Regions:
highlighting territorial cohesion as common goal for a harmonious and balanced development. In
line with the Treaty on the Functioning of the European Union (Art. 174 and 175), all policies and
actions of the Union should contribute to economic, social and territorial cohesion. Therefore, those
responsible for the design and implementation of sector-specific policies should take the principles
and objectives of the Territorial Agenda into consideration. The coherence of EU and national
policies is of utmost importance for territorial cohesion. Most policies have significant territorial
impacts, influencing the development opportunities of territories in different ways. Co‐ordination of
different sector-specific policies, to optimize territorial impact and maximize coherence, can
significantly increase their success, and help avoid, at all territorial levels, negative effects from
conflicting policies. This has been a focus of the development of this Strategy. Balance of
sustainability, competitiveness, and social cohesion can be realized through such integrated
territorial development.
Investing in Europe's future - the fifth report on economic, social and territorial cohesion
(November 2010): The 5th Cohesion Report is the first report adopted under the Lisbon Treaty,
which added territorial cohesion to the twin goals of economic and social cohesion. The report: (i)
analyses the territorial dimension of access to services; (ii) pays more attention to climate change
and the environment; and (iii) considers how the territorial impact of policies can be measured. The
Cohesion Policy is the EU's main instrument for pursuing harmonious development across the Union.
It is based on a broad vision, which encompasses not just the economic development of lagging
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regions and support for vulnerable social groups, but also environmental sustainability and respect
for the territorial and cultural features of different parts of the EU.
As also mentioned in the EU budget review, the following areas must to make progress:
concentrating resources on the Europe 2020 objectives and targets; committing Member States to
implement the reforms needed for the policy to be effective; and improve the effectiveness of the
policy with an increased focus on results. The explicit linkage of the Cohesion Policy and Europe 2020
provides an opportunity to: (a) continue helping the poorer regions of the EU catch up with the more
developed regions; (b) facilitate coordination between EU policies for the entire EU, while
addressing social challenges, such as an ageing population and climate change.
The DDIS, built on five pillars, addresses equally the environmental protection issues and the socio-
economic needs, through the provision of basic services, employment opportunities, connectivity
and accessibility. It responds to the cohesion policy, and also takes into account the priorities of EU
Strategy for the broader Danube Region.
The 6th Report on Economic, Social and Territorial Cohesion was published in July 2014. It shows
that EU Cohesion Policy is delivering on the growth goals of the Europe 2020 Strategy by creating
jobs and reducing disparities across Europe. Looking ahead to 2014-2020, the report outlines how
investments will be focused on key areas like energy efficiency and climate change, employment and
social inclusion. For the benefit of citizens, SMEs will receive a large part of these investments. The
Report analyses the state of cohesion of the Union and highlights the challenges faced by national,
regional and local authorities in overcoming the impact of the financial and economic crisis. In
particular, it finds that Cohesion Policy has cushioned the dramatic decline of public investment,
injecting much needed investment resources in many Member States and creating vital financial
stability which serves to attract private investment. Cohesion Policy investments from 2014-2020
will make Euro 38 billion available to support the shift to a more environmentally-friendly economy,
through investments for energy efficiency and renewable resources. Around Euro 33 billion will be
allocated to increase the competitiveness of European SMEs.
EU Strategy for the Danube Region (EUSDR) approved by the EC in December 2010 and adopted by
the European Commission in 2011: Discussed and approved at the community level, this document
defines the core of regional development in the Danube Region. The four priority axes of this EU
Strategy are connectivity (intermodal transportation, culture and tourism, energy networks),
environmental protection (management of water resources, biodiversity protection and risk
management), building prosperity in the Danube region (education, research, competitiveness) and
improved governance (institutional capacity and internal security). They are also reflected in this
strategy for the development of the Danube Delta Region.
Danube Transnational Program 2014-2020: This program supports the integration policy in the
Danube Region in selective fields under the Common Provision Regulation (CPR)/European Regional
Development Fund (ERDF), linked to the EU Strategy for the Danube Region (EUSDR). The intended
"integration policy" is below the EU-level (i.e. efforts are not duplicated in the integration policy at
the EU-level e.g. TEN-T in the transport sector), but above the national level in the respective field.
Transnational projects should influence national/regional/local policies. To achieve a higher degree
of territorial integration of the heterogeneous Danube region, the program addresses common
challenges and needs where transnational cooperation is expected to deliver the best results
(development and implementation of policy frameworks, tools, services and concrete pilot
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investments). Strong complementarities with the broader EUSDR are sought. Priorities are related to
improving the quality of policies and their delivery, improving institutional frameworks for
cooperation, and delivering solutions through concrete investments and pilot action. The Danube
Delta Biosphere Reserve Administration (DDBRA) is coordinating with Ukraine in this regard.
The following documents support the objectives to increase mobility in the Danube Region, and
make the best use of the river and maritime networks:
WHITE PAPER: Roadmap to a Single European Transport Area – Towards a competitive and
resource efficient transport system (EC, 2011): Building on lessons learnt, the Roadmap takes a
global look at developments in the transport sector and its future challenges and policy initiatives
that need to be considered. The Commission's transport vision is presented together with key
measures to achieve a transformation of the European transport system. One of the initiatives
focuses on the European Maritime Transport Space without Barriers, to be further developed into a
"Blue Belt" of free maritime movement in and around Europe, with waterborne transport to be used
to its full potential.
EC Integrated Maritime Policy - Blue Growth: The "Blue Growth" Strategy is the long term strategy
to support sustainable growth in the marine and maritime sectors as a whole. Seas and oceans are
drivers for the European economy and have great potential for innovation and growth. It is the
maritime contribution to achieving the goals of the Europe 2020 strategy for smart, sustainable and
inclusive growth.
Connecting Europe initiative: is aimed at accelerating long-term investments in roads, railways,
energy networks, pipelines and high speed broadband networks.
Improving transport links - investment in infrastructure projects meant to facilitate the
transport of goods and passengers, particularly between western and eastern Europe.
Investments will focus on green and sustainable modes of transport.
Connecting energy networks - making connections between EU countries, to facilitate the
supply of energy - both the traditional one and energy from renewable sources.
Supporting high-speed digital networks - creating broadband networks and delivering pan-
European digital services. Grants will be allocated for creating the necessary infrastructure
to introduce digital identification services and electronic services in public procurement,
health, justice and customs operations. The money will be used to ensure connection and
interoperability of national services.
The spatial development of the Danube Delta Region is based on the following EU documents of
general planning principles for territorial development, urban or rural, to ensure a democratic
process and a balanced, sustainable development:
European Regional/Spatial Planning Charter - Torremolinos Charter (adopted on 20 May 1983 in
Torremolinos, Spain): The Charter argues that regional/spatial planning should be:
Democratic: be conducted in such a way as to ensure the participation of the people
concerned and their political representatives.
Comprehensive: to ensure the co-ordination of the various sector-specific policies and
integrate them in an overall approach.
Functional: to consider the existence of regional consciousness based on common values,
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culture and interests, sometimes crossing administrative and territorial boundaries, while
taking account of the institutional arrangements of the different countries.
Long-term oriented: to analyze and consider the long-term trends and developments of
economic, social, cultural, ecological and environmental phenomena and interventions.
Regional/spatial planning seeks at the same time to achieve the following fundamental objectives:
Balanced socio-economic development of regions
Improvement of the quality of life
Responsible management of natural resources and protection of the environment
Rational use of land
European Spatial Development Perspective (ESDP) - Towards a Balanced and Sustainable
Development of the Territory of the EU (agreed at the Informal Council of Ministers responsible
for Spatial Planning, in Potsdam, May 1999): The aim of these spatial development policies is to
work towards a balanced and sustainable development of the territory of the EU. In the Ministers'
view, it is important to ensure that the three fundamental goals of European policy are achieved
equally in all regions of the EU: (1) economic and social cohesion; (2) conservation and management
of natural resources and the cultural heritage; and (3) more balanced competitiveness of the
European territory.
Leipzig Charter on Sustainable European Cities (2007): This Charter sets common principles and
strategies for urban development, recommending: (1) making greater use of integrated urban
development approaches, and (2) that special attention is paid to disadvantaged neighborhoods
within the context of a city as a whole.
European Rural Heritage Observation Guide (CEMAT, Ljubljana, September 2003): The CEMAT
Guide helps implement the Recommendation of the Ministers responsible for fostering the
development of rural areas as life settings for both economic and recreational activity, and as
natural environments. It seeks to help restore the town-countryside balance and to promote the
rural world's resources as a development factor. It is essential to put these principles into effect and
to promote sustainable rural planning, combining economic growth and protection of heritage
assets inherent in both natural and cultural landscapes. It contributes towards achieving
independent development of rural areas for living and economic and recreational activities, and as
physical regions, and provides guidelines regional/spatial planning for management of the heritage.
Common Agricultural Policy for 2014-2020: CAP is a bridge between the expectations of EU citizens
regarding agriculture and the expectations of farmers in countries facing economic and
environmental challenges. This sector is considered to be strategic in terms of food security,
environment and economic growth in rural areas. In accordance with developments and CAP reform
for 2014-2020, it will focus on three main pillars: ecology and efficiency in agriculture, ensuring
healthy food at affordable prices and revitalizing rural areas and communities.
Rural development policy for the period 2014-2020: RDP focuses on three strategic objectives in
the long term, which are in line with Europe 2020 strategy and CAP objectives. Rural development
policy aims to boost the competitiveness of agriculture, ensure sustainable management of natural
resources and fighting climate change and to promote a balanced territorial development of rural
economies and communities, including creating and maintaining jobs.
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Funds allocated under the CAP and rural development programs of the Member States will be
directed towards the following objectives: increasing the competitiveness of European agriculture at
global and national level, conservation of farming systems diversity in the EU states and adapting
agricultural production to new environmental challenges related climate change and natural
resource protection.
Common Fisheries Policy: CFP aims to ensure sustainable fisheries and aquaculture are ecologically,
economically and socially sustainable and that they provide healthy food for EU citizens. It also aims
to support a dynamic fisheries sector and to ensure a fair standard of living for the fishing
communities. However, it stresses the need to ensure that fishing practices do not affect the
reproductive capacity of fish populations, by adopting a cautious approach, which recognizes the
impact of human activities on all ecosystem components. In aquaculture, the preservation of an
economically viable sector, the guarantee of food safety and animal welfare, environmental
problems solving and research fostering are considered to be a priority.
EU Tourism Policy: aims to maintain Europe as a first destination and, at the same time, to maximize
industry's contribution to growth and employment and to promote cooperation between Member
States, in particular through the exchange of best practices. Under the European Commission's
communication "Europe, the world’s No 1 tourist destination — a new political framework for
tourism in Europe", four priority actions were identified: boosting competitiveness in the European
tourism sector, promoting the development of sustainable, responsible and high quality tourism,
strengthening Europe’s image as a collection of sustainable and high quality destinations.
Considering Danube Delta's special status of a UNESCO site, the DDIS development subscribes as
well to international conventions and strategies that cover specific requirements for the protection
and conservation of natural heritage:
Seville Strategy for Biosphere Reserves (1995): This document identifies the specific role of
biosphere reserves in developing a vision of the relationship between conservation and
development. It provides recommendations for developing effective biosphere reserves and sets out
conditions for the appropriate functioning of the World Network of Biosphere Reserves. It includes
recommended implementation indicators, i.e. a check-list of actions that will enable all involved to
follow and evaluate the implementation of a strategy.
Convention concerning the Protection of the World Cultural and Natural Heritage (Paris, 1972)
adopted in Romania by Law no. 187/1990: The goal of this convention is to ensure international
protection of the world cultural and natural heritage, by establishing a system of international co-
operation and assistance.
EU energy policy for the period up to 2020: is based on three main objectives: Durability - stresses
EU's concern for climate change by reducing its emissions of greenhouse gas (GHG) to a level that
would limit global warming effect to just 2 °C above the temperatures of the pre-industrial era;
Competitiveness - aims to ensure an effective implementation of the internal energy market; Safety
of energy supply - aims to reduce EU's vulnerability on energy imports, disruptions in power supply,
possible energy crises and uncertainty regarding future energy supply.
EU climate change policy: proposes as long-term objective (2050) to reduce emissions by 80-95% as
compared to 1990. Making Europe an energetically efficient economy and with low carbon
emissions will lead to economy improvement, creating jobs and strengthening competitiveness. EU
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strategy on the adaptation to climate change includes measures such as: the use of smaller amount
of water, adapting regulations on construction, constructing flood defenses, development of crops
adapted to drought conditions.
The White Paper on multilevel governance: the document is part of a proactive political approach to "Building Europe in partnership" and sets two main strategic objectives: encouraging participation in the European process and reinforcing the efficiency of Community action. Cross-Border Issues
The significant cross-border issues in achieving common environmental objectives between the
DDBR in Romania and the Danube Biosphere Reserve in Ukraine are well recognized in
international conventions. The Danube Delta Biosphere Reserve in Romania and Danube Biosphere
Reserve in Ukraine are recognized as "Cross Border Danube Delta Biosphere Reserve
Romania/Ukraine" within UNESCO MAB Program and cross-border RAMSAR site.
Several cross-border cooperation projects have been implemented or are currently under
implementation in the Region. The first Global Environmental Facility (GEF) project in Romania was
implemented from 1995 through 2000 aimed to further enhance Biodiversity in Danube Delta
Biosphere Reserve and included activities for supporting the cross border cooperation between the
two biosphere reserve authorities. The next important projects were to (i) identify the joint
management objectives for biodiversity conservation and sustainable development within the
Danube Delta Romania/Ukraine and Lower Prut River in the Republic of Moldova (2001-2002); (ii)
elaborate the joint monitoring program (2004-2006); (iii) catalog, assess and remedy the
anthropogenic sources of pollution in the Lower Danube Region of Ukraine, Romania and Republic of
Moldova (2013-2015); (iv) consolidate the network of nature protected areas for biodiversity
protection and sustainable development in the Danube Delta and Lower Prut River (2013-2015). An
important document was published in 2004 entitled "Transboundary cooperation in the nature
protected areas in Danube Delta and Lower Prut - Management Objectives for Biodiversity
Conservation and Sustainable Development", financed by the EU Tacis Programme CBC (TSPF
0302/0044).
Coordination with National and Regional Strategies
At national level, the following planning documents and national strategies, as well as regional and
county specific planning documents, provide the general framework and background for the DDIS.
Partnership Agreement between European Commission and Romania 2014-2020 is meant to create
coherence in the use of structural funds by Romania in its efforts to reach the Europe 2020 goals for
smart, sustainable and inclusive growth. The document provides a strategic plan with investment
priorities for the use of the European Regional Development Fund (ERDF), the European Social Fund
(ESF), the Cohesion Fund (CF), the European Maritime and Fisheries Fund (EMFF) and the European
Agricultural Fund for Rural Development (EAFRD). The Romanian Partnership Agreement is
organized around five national challenges: 1) competitiveness and local development; 2) people and
society; 3) infrastructure; 4) resources; and, 5) administration and government. The defined goals
will require efficient collaboration of the public and private sector, as well as mobilization of further
funds.
The National Territorial Development Strategy 2035: This strategy is in progress (in the public
11
consultation stage). It is the instrument for the implementation of the spatial planning system in the
country - regional development plans and general urban plans - supporting operationalization of
investment programs to 2035. Five objectives were identified:
- Ensuring a functional integration of the national territory in the European area by supporting
effective interconnection of energy, transport and broadband networks;
- Improving life quality through the development of technical and urban infrastructure and
public services in order to ensure quality, attractive and inclusive urban and rural areas;
- Developing a network of competitive and cohesive localities by supporting territorial
specialization and forming of urban functional areas;
- Protecting natural and built heritage and valorization of territorial identity elements;
- Strengthening the institutional capacity to manage territorial development processes.
Also, measures, actions and examples of projects were defined for urban, rural, mountain, cross-
border and coastline areas.
The Spatial Plan of the National Territory (section 1: Transport Network; section 2: Water, section 3:
Protected areas; section 4: Human settlements network; section 5: Areas of natural risks; section 8:
Tourist areas): It represents a spatial basis for strategic sectoral programs, determining the scope
and priorities for the country's territorial development in relation to EU policies.
National Strategy for Climate Change 2013-2020 is the guiding document for national climate action
aimed at reaching the Europe 2020 goals - 20% reduction in GHG emissions, 20% improvement in
energy efficiency, and 20% increase in the use of renewable energy sources. The strategy points out
sector-specific challenges and recommends appropriate sector-specific adaptation and mitigation
policies. It will be followed by an action plan and a refined strategy by 2015, developed with the
technical assistance of the World Bank. The Strategy and the available findings from the World Bank
Technical Assistance, have provided a starting point for this Study.
Romania's Energy Strategy 2007-2020: implements Directive 2006/32/EC on energy end-use
efficiency and energy services. The strategy has components for energy efficiency in industry,
transport, public and residential consumption and renewable energy. The overall objective of the
energy sector strategy is to satisfy energy needs both now and in the medium and long term, at a
price as low as possible, suitable for a modern market economy and a decent living standard in
terms of quality, safety in supply, by observing the principles of sustainable development.
The Master Plan for Romania's national tourism 2007-2026 (a project of the National Tourism
Authority, in cooperation with the central government, local authorities, protected area managers,
civil society) has the following strategic directions: administrative structures, planning and physical
infrastructure, human resource development, improving tourist products, information services,
statistics and research, destination marketing and natural environment.
The National Strategy for Ecotourism Development in Romania: has the general objective to create
conditions for the development of ecotourism in the protected areas and their adjacent areas,
aiming to achieve a competitive ecotourism product at the national and international level. The
strategy focused on the following areas: institutional and associative framework, tourism
infrastructure and spatial planning, education and awareness, human resource development,
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business development and local development, nature conservation and protection, marketing and
promotion.
The Sectoral Strategy on Culture and Cultural Patrimony for the period 2014-2020: defines the
following strategic and cross-sectoral objectives: protecting national cultural heritage (immovable
heritage, movable national cultural heritage, intangible cultural heritage), supporting and promoting
contemporary cultural and artistic creation, education and cultural intervention, strengthening
institutional capacity and developing cultural infrastructure.
Report of the Presidential Commission for Built and Historical Heritage and Natural Sites: presents
the measures on legislation, institutional and administrative framework, protected areas, identifying
and protecting cultural landscapes, archaeological heritage, artistic components, historic
environment and climate change, and natural heritage.
Multi-annual National Strategic Plan on Aquaculture: focuses on the following areas: administrative
simplification, in particular for evaluation, impact assessment and licensing; legal security of
aquaculture operators in relation to access to waters and space; establishment of indicators for
ecological, economic and social sustainability; evaluating other potential transnational
environmental effects in neighboring countries.
National Rural Development Program 2014-2020: It represents the commitment by Romania
towards implementation of Pillar II of the EU-Common Agriculture Policy reflected in the EC
Regulation 1305/2013. NRDP is an opportunity to approach the weaknesses identified in the SWOT
based on enforcement of the strengths and use of the available opportunities. A special attention
would be devoted to making full use of the lessons learned and progress achieved through
implementation of the previous NRDP when the basis for promoting the continuous and sustainable
use of agricultural and forest land have been laid, creating thus the fundamentals for maintaining
the natural and cultural patrimony, and conservation of the high natural values of rural areas. NRDP
was developed in full accordance with the principles and objectives set through international
agreements and EC directives concerning conservation of biodiversity and natural habitats,
protection of wild flora and fauna as well as sustainable management of natural resources.
Strategy for Development of the Agri-food Sector in the Medium and Long Term (2020-2030
horizon): The document provides a long-term vision of the development of agriculture and rural
space aiming at smart and sustainable valorization of the agri-food potential and development of
non-farm economy towards establishing a right balance between economic development and the
environmental impact of agriculture. The strategy is the result of a systemic sector-specific
approach, which considers the interlinks of economics, society and environment while recognizing
the need for social cohesion, equality of chances, indiscrimination and diversity.
National Competitiveness Strategy for 2014-2020: provides a comprehensive and horizontal
approach with regard to development policies in the following sectors: industrial competitiveness
and RDI, clusters, regional smart specialization, SMEs, eco-innovation and green industries, creative
industries, business environment. Investment priorities are concentrated in those areas where
Romania has competitive advantages. The strategic priorities set out in the strategy are: improving
the regulatory environment; partnership actions between public and private environment; support
factors and services; promotion of 10 future sectors (tourism and ecotourism, textiles and leather,
wood and furniture, creative industries, automotive and component industry, information and
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communication technology, food processing and beverage, health and pharmaceuticals, energy and
environmental management and bio-economy (agriculture, forestry, fisheries and aquaculture),
biopharmaceutics and biotechnology; preparing Generation 2050 and societal challenges.
The National Strategy for Research, Technological Development and Innovation 2014-2020:
focuses on areas where Romania and Romanian regions have competitive advantages, smart
specialization, sectors of excellence. The general objectives are aimed at: increasing competitiveness
of the Romanian economy through innovation; increasing the Romanian contribution to the
advancement of border knowledge; increasing the role of science in society.
Romania Transport Master Plan: The Master Plan analyzes the major objectives of the national
transport system. Therefore, it is a strategic tool for planning major interventions (projects and
other actions) that are significant to transport objectives at national level. Road, rail, port and
waterway, air and multi-modal transport is envisaged.
The National Strategy for Digital Agenda for Romania: the principle underlying the National
Strategy is to create a competitive environment that will encourage and attract citizens and
businesses paying taxes, which, in turn, will provide long-term sustainable growth. The 4 action
areas of the Digital Agenda for Romania 2014-2020 are: e-Government, Interoperability, Cyber
Security, Cloud Computing, Open Data, Big Data and Social Media - increasing efficiency and
reducing costs in the public sector in Romania by modernizing the administration; ICT in Education,
Health, Culture and e-Inclusion intervenes in social challenges at sector-specific level and will ensure
that ICT investment will create a positive impact in the social context; e-Commerce, Research,
Development and Innovation in ICT - are based on the comparative advantages of regional Romania
and support private sector economic growth; Broadband and Digital Infrastructure Services - ensure
social inclusion and enable benefits in all areas of action.
National Waste Management Strategy 2014-2020 and The National Plan on Waste Management:
NWMS aims to turn Romania into a "recycling society" by: prioritizing efforts in waste management
in accordance with the waste hierarchy; encouraging waste prevention and reuse for a greater
resource efficiency; developing and expanding separate waste collection systems in order to
promote high quality recycling; developing/implementing recycling technologies/facilities and/or
obtaining high efficiency of extraction and use of raw materials from waste; support energy recovery
from waste, where appropriate, for waste that cannot be recycled; minimizing waste amounts
disposed of in landfills.
Health Strategy for 2014-2020: The overall objective of the strategy is to facilitate access to better
and safer health services, especially for vulnerable groups, and it covers four pillars: Health
infrastructure; Health information technologies - e-Health; Extensive research in health; Public
health services and medical care.
Strategy to reduce early school leaving: The measures provided in the strategy are intended to
promote and support the integration/reintegration into the education system and also include an
efficient system for collecting and analyzing data and information on all aspects of the education
system.
National Strategy for Lifelong Learning: The strategy aims to create a strategic framework to
encourage and increase participation in lifelong learning. Strategic objectives are to increase
participation in lifelong learning, improving the relevance of education and training for the labor
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market and fostering lifelong learning in close collaboration with social partners and all relevant
stakeholders.
Educational Infrastructure Development Strategy: involves outlining a map of educational and
training infrastructure.
National Poverty Reduction Strategy 2014-2020: The strategy aims to reduce poverty through active
labor market inclusion of marginalized people. This strategy will constitute the main strategic
framework for social inclusion and poverty reduction, developing strategic objectives and priority
actions up to 2020. There will be separate Action Plans on social inclusion and combating poverty in
terms of social services, protection of the elderly and active ageing, child protection and protection
of persons with disabilities.
The National Employment Strategy towards 2020: ensures a better coordination of the
employment policy priorities, taking into account the Europe 2020 strategy targets. The main
objective of the strategy is to ensure a sustainable level of employment in Romania, supported by
economic competitiveness, social inclusion and sustainable development. The strategy includes
specific objectives and measures aimed to integrate into the labor market categories of people
experiencing employment difficulties (young people, elderly, people with disabilities, long term
unemployed, Roma etc.).
Strategy for strengthening public administration 2014-2020: proposes the following general
objectives: adapting the structure and mandate of government to citizens and the real possibilities
of financing; implementing a performing management in public administration; de-bureaucratisation
and simplification for citizens, businesses and administration; increasing local autonomy and
strengthening the capacity of local authorities to promote and support local development;
increasing quality and access to public services.
The following sub-national (regional, local) documents, relevant for Danube Delta, are also taken
into consideration:
Regional Development Plan for the South-East Region 2014-2020: This plan identifies the
development needs of the region where Danube Delta is located. The RDP proposes 10
development priorities: Integrated Sustainable Urban Development; Development of
regional transport infrastructure; Improving the competitiveness of the regional economy, in
the context of promoting smart economic specialization; Improving the quality of tourism at
the regional level; Conservation and protection of the environment; Improving energy
efficiency and the use of renewable resources; Improving quality in education, health and
social inclusion; Better use of resources in rural areas and modernization of the rural
economy; Improving human resources at regional level in the context of regional smart
specialization; Promoting cross-border and interregional cooperation.
The Climate Change Adaptation Strategy and Action Plan for the Danube Delta Region has
been developed by the WWF in collaboration with other institutions for the EU Commission.
Although the EU-funded regional study focuses primarily on Moldova and Ukraine, the work
presents an overview of the trans-boundary state of the Danube Delta and assesses the
possible impacts of climate change on the natural as well as socio-economic systems in the
DD region. DD resilience to climate change impacts on natural and socio-economic systems
is investigated. It contains sector-specific policy proposals aimed at improving the
15
adaptation capacity of the Danube Delta basin and is useful to developing the integrated
sustainable development strategy and ITI investments in the Study Area.
The Integrated Urban Development Plan for Sulina: it identified 4 strategic lines of action:
urban development, human resource development, economic development, and protection,
development and valorization of the natural and built heritage.
Spatial Development Plan for the Danube Delta (SDP Danube Delta, URBANPROIECT,
2008): This document is a plan providing analysis of the current situation, trends and
problems. It includes a development strategy with vision, specific objectives and
development measures.
Spatial Development Plan for the Black Sea coast (SDP Black Sea coastal area,
URBANPROIECT, 2010): This document is a plan providing analysis of the current situation,
trends and problems. It includes a development strategy with vision, specific objectives and
development measures.
Local development strategies 2012-2016: drafted at ITI DD communes level within the Regio Delta Plan project.
The report "Competitive Cities" - prepared by the World Bank in 2013, proposes a strategy for
sustainable and inclusive development of Romania, by promoting the country's main economic
engines - the most important urban centers.
The report "Identifying project selection models for ROP 2014-2020" - prepared by the World Bank
in 2014, proposes a number of models for the selection of projects to be financed under ROP 2014-
2020, to improve efficiency of investments supported by this program.
The report "Improved prioritization criteria for NLDP projects" - prepared by the World Bank in
2015, proposes a methodology for prioritizing projects to be financed by NLDP, based on clear and
rigorous criteria, avoiding duplication of investments made with government funding with those
with European funds.
The report "Diagnosis and policy recommendations to support the inclusion of Roma in Romania" -
prepared by the World Bank in 2013, comprises a thorough diagnostic analysis of housing conditions,
education, health and employment for the Roma population, based on quantitative and qualitative
methods, and proposes a set of measures to improve quality life.
16
3. Methodology
The Strategy Development Process
The Strategy process started with the Diagnostic Report, which outlined opportunities and
constraints for the study area. The next step was the Vision report, which captured a forward-
looking ideal of where the community wants to be and what the region has the potential to be.
Based on these inputs, the strategic objectives were derived. The Needs Assessment (NA) identified
measures and interventions to achieve the overarching strategic objectives and underlying sector-
specific objectives. The NA lists the needs for physical investment, policy and regulatory reforms,
institutional development, and technical assistance (TA) by subject.
Prioritization and an action plan are to be done at later stages of the Strategy development
process. The list of needs can be endless and further prioritization, based on available human and
financial resources will be necessary. This step, the Strategy, includes recommended priority projects
from the study of this stage, and links them to financial resources, mostly the ones allocated through
the ITI instrument. The following steps: the Strategic Environmental Assessment, the ITI Proposal
and the Action plan will further describe, prioritize and help operationalize the proposed projects
under the Strategy.
Project Prioritization Approach
Establishing a clear and understandable prioritization process can help the public and stakeholders
better understand how and why investment decisions are made. Prioritization frameworks that
capture a broad range of social, environmental and economic objectives are helpful in engaging
broader and deeper participation. The prioritization process establishes criteria to ensure that all
projects support adopted goals and can help cultivate an inherent level of trust that the selected
projects will deliver most benefits.
It is important to use a mix of quantitative and qualitative tools and analysis in a meaningful
prioritization process. The resulting score for a project is only as valuable as the quality of data and
assumptions that go into the calculations. Some types of projects, such as livability projects and
projects to reduce greenhouse gas emissions may not score well in quantitative analysis because it
can be difficult to accurately measure the costs and benefits. It is therefore important to also apply
qualitative factors in the prioritization process by providing supplementary information.
Project prioritization approach and corresponding prioritization criteria need to be defined in the
context of the specific development circumstances. In the case of the Danube Delta Region, with a
preliminary ITI allocation for all relevant OP Axes, the main objectives of the prioritization are to
indicate the degree of expected impact a project will have on the two strategic objectives defined in
the strategy for the region, and, to some extent, to guide the sequencing of project
implementation10. Based on a fairly large allocation in all OP Axes (possibly with the exception of the
OP Axis for environmental improvement projects; this is addressed separately below), the
10
A high level of priority does not mean a project should be implemented first, but if there are no other sequencing factors, this criterion can be used. Sequencing of projects will be approached in the following ITI proposals and within the Action Plan.
17
prioritization will not be done due to significant funding constraints11, if any (i.e. if a project can be
implemented or not due to availability of funds). The projects do not "compete" with each other
across OP Axes. In the Danube Delta region case, prioritization will not be made to know whether,
for example, a transport project is more important than an education project (although, currently,
prioritization is used for this purpose). Projects in different sectors will only "compete" in case they
would be eligible from the same OP Axis, which is expected to be rare, if at all.
As mentioned above, the defined environmental projects will need to be dealt with separately, since
their total estimated costs most likely will exceed the allocated ITI funding to date for such projects.
They should go through the same prioritization process, but rather than choose which discreet
interventions that should or should not be implemented within the available OP Axis funding
allocation for the Danube Delta Region, it may be more appropriate to adapt the scope (ambition) of
the set of projects as a package to the available funding12. i.e., allocate a certain amount to each
project (preferably not all) to fit the available funding (this needs to be done by a group of
environmentally knowledgeable people).
The suggested prioritization approach and criteria are kept simple. In the Danube Delta Region case,
it is a project's contribution to the two strategic objectives (reflected in criteria no 1 and 2) which
should mainly determine a project's priority. This is reflected in the higher weights given to those
two criteria. Adding more criteria doesn't necessarily strengthen prioritization. More details raise the
risk of "double-counting"; i.e. indirectly (unintentionally) giving something a higher weight than
intended.
Approach
The suggested prioritization approach is quite straightforward. Five main criteria are used. Each main
criterion is assigned a weight (the total adding up to 100). Each criteria is given a score from 1 to 10
(low to high) for a project. These scores are then multiplied by the respective weight. The resulting
five main scores for the project are added up to arrive at the project's total score.
To help the thought process (judgement) to arrive at the five main scores, a set of sub-items (as
reminders) is included in the description of each criterion. For the two main criteria (No 1 and 2),
these sub-items have been formalized as sub-criteria with assigned weights (also adding up to 100),
providing an option to arrive at those two main scores through a calculation. In that case, each of
the sub-criteria is first given a score from 1 to 10 (low to high). They are then multiplied by their
respective sub-criteria weight. The total of these sub-scores then becomes the score for the project
for that main criteria (No 1 or 2).
Since the assessment of projects against the criteria represents judgements, the most adequate
project scores tend to be achieved by consolidating the scores done individually and independently
by a number of people that are reasonably knowledgeable about the development area and the
11 However, local partners funds may be restricted, which will influence the sequencing. Projects with a low priority level may not be implemented, due to the lack of funds of our partners. 12
An example for illustration: at some point, the marginal benefit of the project "Restoration of natural water circulation and key habitats" could be less than the efforts for the program "Investment to support local action to reduce pollution by nitrates".
18
project matters (e.g. appointed as a "prioritization group").13 These individual scores are then
consolidated (an average calculated for each project based on the scores of the individuals).
Proposed Criteria
The following prioritization criteria are suggested and should be used for projects proposed in ITI
Proposal and Action Plan. The prioritization (scoring) should be done for essentially all projects in
each "sector" or subject (tourism, transport, etc.). 14 The same criteria will be used for all
"sectors"/subjects.15
Table 1: Prioritization Criteria
Criteria Weight
1. Environmental Strengthening - anticipated impact towards Strategic Objective 1
35%
2. Economic Development - anticipated impact towards Strategic Objective 2 35%
3. Geographical breadth, number of beneficiaries 10%
4. Level of difficulty and long-term financial sustainability 15%
5. Level of readiness (status of preparation for implementation) 5%
Criteria Description
1. Environmental Strengthening - anticipated impact towards Strategic Objective 1 (35%)
This criterion represents the impact that the project is expected to have on the first strategic
objective defined in the Danube Delta Integrated Sustainable Development Strategy (2030).
Conserve the unique environmental assets through scientifically-guided environmental
management, and by empowering the local communities to be proactive guardians of this
unique global heritage.
The emphasis is on the positive environmental impact in the development area, reduction of
environmental risks, preventing loss of biodiversity and ecosystem services, environmental
management, and empowerment of local communities. The unique natural environment is
considered critical for the development of the Danube Delta Region. Projects that help maintain or
improve the quality of the natural environmental and its biodiversity, and/or reduce the stress on
the same, should get a high score. Projects that decrease the environmental value of the region, or
pose risks of this over time, should be rejected or at least get a low score.
In case the breadth of the criteria causes difficulty in making one, overall judgement to define the
score for a project, judging a set of sub-items (sub-criteria) may help an evaluator arrive at the score.
NOTE: Sub-criteria can be used as follows: (a) as a reminder in the thought process in coming up
13
An approach that relies less on a thought process, and more on the cost-benefit ratio of each project and on a comparison of net values. The thought process about estimated costs and quantifying anticipated benefits must be taken into account in such an approach. 14
There can be no need to make the score of a project smaller with a well-defined purpose. 15 .
If projects in several sectors/subjects are eligible for funds from the same OP axis, further reassessment will be required, especially if funding is not sufficient for all programs. If needed, a number of criteria can be defined that should distinguish between different weights for the appropriate sectors/subjects.
19
with the score for the project; or (b) for detailed calculation of the score, using weights and assigning
scores for each sub-criteria (see Attachment for an illustrative example).
Suggested sub-criteria and weights:
Weight (%)
Project has positive environmental impact in the development area 30
Project reduces environmental risks over time 10
Project prevents loss of biodiversity and loss of ecosystem services 30
Project strengthens environmental management 15
Project empowers local communities 15
2. Economic Development - anticipated impact towards Strategic Objective 2 (35%)
This criterion represents the impact that the project is expected to have on the second strategic
objective defined in the Danube Delta Integrated Sustainable Development Strategy (2030).
Develop a green and inclusive local economy16 , based on sustainable consumption and
protection, resource efficient, capitalizing on the area's comparative advantages, supported by
improved public services.
The emphasis is on economic development which is sustainable and socially inclusive. Tourism is an
important element in the Danube Delta region development. Therefore, projects that enhance the
region as a destination and will contribute to attracting visitors should get a high score. High scores
should also be given to projects that create synergies (between environment, tourism, fishery,
agriculture, small business, services, etc.) and improved basic services (transport, water, sanitation,
etc.) for the economic development and for improved quality of life. The criteria also covers a
project's contribution to resource efficiency, particularly energy efficiency, and low carbon emission,
as applicable.
Note: Some aspects associated with "green" economy (particularly the reduction of environmental
risks and preventing the loss of biodiversity and ecosystem services) should have been taken into
account under the first criterion, and their impact should not be "double-counted" here.
Suggested sub-criteria and weights:
Weight (%)
Project enhances DD image as destination and will attract visitors to the region 40
Project improves quality of life through improved services 40
Project contributes to synergies17 for the development of the region 10
Project promotes energy efficiency / low carbon emissions 10
16
An economy aimed at strengthening human well-being and social equity, while significantly reducing environmental risks, prevents the loss of biodiversity and ecosystem services. The economy can be considered ecological if it reduces carbon emissions, promotes resource efficiency and is socially inclusive (UNEP Green Economy Initiative)
17 Synergy means a connection between the projects that adds value (it can be a potential effect of 2 + 2 = 5).
Other relations between projects should not be treated preferentially in scoring.
20
3. Geographical breadth, number of beneficiaries (10%)
This criterion should reflect the scope of impact that a project is expected to have, in terms of (a) the
number of communes or urban areas (towns, city), and (b) the impacted population in the region
(the number of people that will benefit from the project). For this scoring, it may help classify
projects on these two dimensions, as follows. A project of type A should get a high score, while a
project of type D should get a low score on this criteria. By this criteria, a larger breadth of a project
in and of itself, will be considered a positive.
Geography Beneficiary
Scope Scope
Project type
A High High For example, promoting the region as tourism destination
B High Low
C Low High E.g. urban development of Tulcea city
D Low Low
Note: For people who will be negatively affected by a project, compensation arrangements should be developed and
implemented, as per government regulations.
The goal of this approach of evaluation is its simplicity, a cornerstone of any prioritization exercise. A
more quantitative approach, such as the proposed criteria by ADI ITI "population or tourists targeted
by the project" could create unintentional complications and a risk for inconsistent scoring. Coming
up with numbers and trying to get consensus on them among the evaluators would probably not add
any value compared to simply making a judgement call regarding the high / low weight.
Although one area of the Danube Delta Region is not more important than any other, the Delta is
however highlighted to some extent as particularly significant in the region based on its strong
relationship with the criterion and strategic objective no. 1. Also, Danube Delta, by its fishing and
touristic potential, is of considerable importance in relation to the strategic objective criterion no. 2.
In general, project packaging (based on various aspects, including efficiency and economy of the
procurement approach) should be done before the prioritization. However, the Danube Delta Region
projects have some particular characteristics to take into account. As per the process with the OPs,
each project is supposed to be associated with a Beneficiary (local government or private entity)
responsible for its implementation. Thereby packaging for procurement and actual implementation
purpose may be done as "a second step" by various communes joining together. Improved
sanitation across many communes provides an example. Although an individual sanitation project
defined by commune will be getting a very low score on criteria 3 (breadth), it should get a high
score on both criteria 1 and 2. So even though a larger, packaged investment project, addressing all
the communes with sanitation needs, would get a much higher score on criteria 3, scoring this as
one project or individually by commune, may not matter significantly.
4. Level of difficulty and long-term financial sustainability (15%)
This criterion is intended to capture differences in project complexity and the risks and uncertainties
regarding long-term financial sustainability.
21
NOTE: The higher the complexity, the lower the score; and the higher the risk or uncertainty is for
long-term financial sustainability to be achieved, the lower the score.
Example of factors to consider when assessing this are:
Technical complexity (e.g. what is the risk of unexpected complications or surprises? Will we
apply a "new" plan or a different technology? "Have we done it before or not" in this
region?)
Institutional complexity (e.g. are many local governments involved or not? Is project
implementation dependent on actions by the county or national government entities? Do all
interested parties agree on the project approach? Is the main beneficiary ready and well
prepared to assume its responsibilities for the project?)
With regard to demand-driven project activities (e.g. agricultural initiatives), are required
mechanisms and staff in place to meet the demand?
Procurement complexity (e.g. are experienced and reliable contractors available? Will the
contracts be reasonably simple and straightforward, or be complex? Is beneficiary staff
capable to manage the contracts / supervise the works properly?)
To what extent will weather conditions be a factor for project implementation?
What level of contingency planning would be advisable for the project? (to be prepared for
"what could go wrong")
Will required local funds be readily available or not for the project implementation?
What is the risk or uncertainty that the required level of funding for adequate future
operations and maintenance (O&M) will not be available?
Other complications, risks or uncertainties?
5. Level of readiness (status of preparation for implementation) (5%)
In principle, full readiness of a project should not make it more important per se from a prioritization
perspective. However, since the Danube Delta Region projects will mainly be funded by EU ITI funds,
within a fixed period of time, the challenge of absorbing these EU funds justifies a limited premium
for such projects. Therefore, projects which are, at the time of the prioritization exercise, more
advanced in their preparation and readiness for implementation than others, will get a small
preference (the 5% weight). It reduces various uncertainties and risks; e.g. regarding later
unexpected preparation difficulties, timely absorption of funds, etc.
Examples of readiness factors, as applicable (they may differ by type of project), are:
The scope and objectives of the project are clear
Main beneficiary (local government or private entity) defined, committed, ready to proceed
Required local project funding is committed (available)
Pre-feasibility study, full feasibility study, and/or engineering design documentation exist,
and these are not more than three years old
Project implementation arrangements (responsibilities / "who will do what") are defined and
accepted by involved parties
Key project implementation staff are in place
Project procurement plan exist
22
Initial procurement documents drafted (ready to be issued)
Land ownership questions are clear
Any required land acquisition is well advanced
Local public consultations have taken place
In addition, any conditions or other constraints for start of project implementation should be
determined and assessed when giving a project its "readiness score". For example, the risk of
procedural complications during the final project approval processes; the level of dependency on
other project implementations (risk of delay); and the quality of some of the project documents may
need to be reassessed (risk of later additional work) and taken into consideration.
23
II. History
This section provides a summary of three prior reports based on which the Strategy was developed:
the Diagnostic Analysis (DA), the Vision Document and the Needs Assessment (NA).
1. Diagnostic Analysis
A dual challenge for the sustainable development of the Danube Delta is the conservation of its
ecological assets and improvement of the quality of life for its residents. The Delta hosts
extraordinary biodiversity and provides important environmental services. It is the largest remaining
natural delta in Europe and one of the largest in the world. It is also the only river delta that is
entirely contained within a Biosphere Reserve. Established as a UNESCO Biosphere Reserve and a
Ramsar site in 1990, the Danube Delta is one of the continent's most valuable habitats for specific
delta wildlife and biodiversity. The most significant physical and ecological feature of the Delta
(DDBR) is its vast expanse of wetlands, including freshwater marsh, lakes and ponds, streams and
channels. Only 9% of the area is permanently above water. Life for the less than 10,000 residents of
the core Delta is challenging and access to essential social and economic services is limited. Water
transport is often the only option to reach and travel from destinations in the core Delta. The area
also has lower access to basic services, such as piped water and sewerage, than the neighboring
rural areas. Health and education services are also constrained by inaccessibility and decreasing
population.
Economy: While fishery and agriculture will remain important for employment, nature-based tourism has development potential.
Sustainable economic development requires access to markets, infrastructure, a workforce and
some scale economies. Strong human resources, urbanization and connectivity have been important
determinants of growth within Romania (WB Competitive Cities report, 2013). In contrast, the core
Delta remains - by nature - an isolated, inaccessible area, and - by choice of its residents - a region
with a declining population. Out-migration, both to other counties and out of Romania, is one of the
highest in the country, and has resulted in a steady population decline from about 14,000 in 2002 to
about 11,000 in 2012. Moreover, the population is ageing with a median age of 47 in the study area
versus 44 in the country. Furthermore, this small population is dispersed across a wide area, which
presents significant constraints to infrastructure development. There are few jobs in the formal
sector in the core Delta. In 2013, there were only 10.9 formal jobs per 100 working age adults18, half
of the rate in the overall study area. Tulcea County contributes only 0.84% to the country's GDP19. Its
GDP is just short of qualifying Tulcea as a lagging region.
18
Lista Firme, 2013, working-age adults are 18 to 62 years old. 19
Census 2010
24
Figure 8: Comparison of yearly GDP growth among Tulcea and neighboring counties
Source: Authors' calculation based on an Eurostat study
Nature-based tourism has potential for development in the Delta, and ensuring that local
communities benefit from this would be a priority. The remoteness and low density, a constraint
for development of other sectors, is an asset for nature-based tourism. While fisheries and
agriculture will continue to be important for employment, these sectors appear to have rather
limited economic potential in the long run in the Delta. As a relatively capital-intensive and highly
competitive industry, tourism requires the right public sector policies and support to help make the
opportunities and benefits available to local stakeholders. The role of the public sector is to ensure
effective development of sustainable tourism that is guided by a clear vision and strategic directions,
balancing trade-offs. With policy tools and regulatory mechanisms, the public sector can create a
favorable environment enabling the running of profitable tourism enterprises that are in line with
the vision and strategic directions.
-20
-10
0
10
20
30
40
2007 2008 2009 2010
Tulcea
Constanta
Braila
Ialomita
25
Figure 9: Formal Sector Employment by Locality (2013)
Source: Authors' calculations based on the company list database
Quality of life: Providing needed public services in the core delta is a challenge.
Poor accessibility has posed significant challenges to improving the living standards of residents in
the core Delta. Transport accessibility of the core Delta is dependent on its myriad waterways (616
km). This provides potential for a natural transportation system, but is also a challenge for providing
efficient accessibility. While some local all-weather roads may enhance accessibility in some parts of
the core Delta, the area will remain reliant on the network of local waterways. Within the core Delta
0% 20% 40% 60% 80% 100%
TULCEA
MACIN
BABADAG
ISACCEA
CORBU
MAHMUDIA
JURILOVCA
SULINA*
SOMOVA
LUNCAVITA
MURIGHIOL
NICULITEL
SARICHIOI
BAIA
CHILIA VECHE*
CRISAN*
MIHAIL KOGALNICEANU
SFANTU GHEORGHE*
SMARDAN
FRECATEI
NUFARU
SACELE
VALEA NUCARILOR
ISTRIA
JIJILA
MALIUC*
MIHAI VITEAZU
MILA 23*
SLAVA CERCHEZA
VACARENI
CEAMURLIA DE JOS
CEATALCHIOI*
LETEA*
MIHAI BRAVU
C A ROSETTI*
I C BRATIANU
PARDINA* Crop and animal production
Forestry and logging
Fishing and acquaculture
Mining and quarrying
Manufacturing
Electricity gas steam and ac
Water supply seweragewater management andremediationConstruction
Wholesale and retail trade
Transportation and storage
Accomoddation and foodservice
Information andcommunication
Financial and insturanceactivities
Real estate activities
Professional scientific andtechnical activities
Administrative and supportservice activities
Education
10
2
5
20
12
11
3
46
60
42
52
44
190
21
39
50
43
29
48
79
44
40
100
115
556
101
Nr. Jobs Sectors
26
there are some significant constraints to road building both because of physical difficulties and
because of environmental and economic constraints. Residents have expressed a need for all-
weather accessibility to key social and economic services in Tulcea city. This has to be weighed
against financial and environmental feasibility of such developments. Many residents have private
boats and there are also subsidized public services, albeit with limited schedules. The public boat
service is available over about half of the length of the waterways on five separate routes. For many
Delta residents, this is the only means of regular transport. When the waterways are frozen, these
services may not run and in medical emergencies a helicopter (one exists in Tulcea) is the only
lifeline for some communities.
The health and education sectors are constrained by poor accessibility and low population density.
Health care in the core Delta is not only constrained by the generally low quality of services in
Romania, but also by inaccessibility. In Tulcea County, one physician is responsible on average for
1,726 inhabitants, and - although lower than the national figure of 1,894 inhabitants per physician -
servicing the dispersed population, especially in the core Delta, is difficult. With fewer physicians and
a dispersed population, core Delta residents will have to continue to rely on the county hospitals in
combination with telemedicine. Telemedicine was piloted in 2012 with some positive initial results.
The education sector faces similar challenges in terms of handling the inaccessibility and a declining
student population. There are proportionally fewer certified teachers in the Delta (67 %) as
compared to the rest of the county (89 %). Several communes have closed their schools because of
low student numbers and high operating costs, and transportation to other schools has become a
challenge. Moreover, schools struggle with lack of sanitation, heating, and, in some locations, safe
water.
Poor accessibility and low density constraints are mirrored in the basic public services sectors. In
terms of service coverage, rural communes inside the core Delta are much worse than rural
communes in the neighboring areas. For instance, 62 percent of rural households in the core Delta
have access to piped water while 83 percent of rural households in the study area have such access.
Seven villages in the core Delta have no safe water supply while in five villages water supply is
currently being set up. Except in Sulina, wastewater management is weak or non-existent in the core
Delta. Improved wastewater management is needed in both the core Delta and the neighboring
rural areas. The current solid waste management system is also generally inadequate, especially in
the core Delta, with low waste collection and recycling rates, and infrequent pick-up and high waste
transportation costs to the disposal facilities in Tulcea City.
27
Electricity
Figure 10: The core Delta has much lower access to basic services than the Study Area and the rest of the
country
Water supply
ROMANIA
STUDY
AREA
DELTA CENTER
District heating
Source: Census 2011.
Investments in basic service provision will need to be accompanied by plans and institutional
arrangements for cost recovery as well as operations and maintenance. With EU funds, the local
authorities in Tulcea will be able to significantly improve their public infrastructure, but a critical
issue is to ensure that new and improved facilities will be designed and operated in a sustainable
way. For example, centralized sewage collection may not always be a feasible option; local septic
tanks in remote and low-populated areas are likely to represent a more viable solution. In the short
term, it is not realistic to expect full cost-recovery from beneficiaries. The population in the core
Delta currently receives a 50% user subsidy from the Central Government for water supply and other
services. There is a need to strike a balance between the level of service provided, affordability, and
level of (targeted) subsidies.
Environmental Protection: A complex institutional structure hinders conservation efforts and sustainable economic development
Biodiversity is largely maintained by the current protection efforts but ecological systems show
decline. The DDBR is largely meeting its objectives for conservation of globally significant
biodiversity, especially birds. But the picture is less positive with respect to maintaining the
ecological systems and natural resources. These systems underlie local livelihoods and prospects for
sustainable economic development such as fishing. This is a result of reduction of wetland habitat,
over-exploitation, and the spread of exotic species. Other damaging environmental trends are
accelerated siltation and eutrophication along with the associated algal blooms in a number of the
deltaic lakes and some adjacent areas in the Black Sea. The environmental decline is due in part to
historical factors, such as large-scale habitat transformation. There are also ongoing factors, such as
Electricity Sewage
28
illegal fishing and unlicensed construction. The pressures leading to these negative trends are
expected to continue. The capacity and effectiveness of the DDBR Authority (DDBRA) and other
stakeholders needs to be strengthened in order to improve ecological conditions. Strengthening
steps could include both technical and institutional aspects. Technical improvements are better data
monitoring and analytical tools and models. Institutional initiatives should address building trust and
collaboration among different agencies and stakeholders. Mechanisms to identify solutions and to
negotiate compromises need to be strengthened.
The institutional structure for managing the DDBR territory is complex and insufficiently
coordinated which might hinder conservation efforts. This is an obstacle to achieving the goals of
ecological conservation and environmentally sustainable development. A number of national and
local agencies have significant, and sometimes overlapping or conflicting roles. Most significantly, of
the 580,000 ha within the DDBR, about 12.3 % is owned by the Tulcea County Council and 5% by the
Local Councils. This includes the poldered areas that are leased to private concessionaires for
agriculture, aquaculture and forestry use. These overlapping roles can make it very difficult to agree
upon and implement important management decisions such as identifying areas for ecological
restoration. The DDBRA itself has a wide range of responsibilities and functions. These are: (a)
regulation (issuing of environmental permits); (b) land administration (for DDBR areas not under
county or local jurisdiction); (c) conservation planning and protection; and (d) ecological education.
In practice, local residents primarily notice DDBRA's role in setting and enforcing restrictions on
access and resource use.
Successful management of protected areas requires close collaboration with local stakeholders.
Unlike the situation in many Biosphere Reserves and other protected areas, the DDBRA is
subordinated to the Ministry of Environment, Water and Forests rather than being directed by a
multi-stakeholder Board. DDBRA also frequently relies on financial and political support from
environmental NGOs and other national and international bodies. As a result, DDBRA is often viewed
by Delta residents - as the "agent" of external, nature-focused interest groups with little regard for
local needs and quality of life. Based on wide international experience, the management of
protected areas is most successful when there is a combination of enforcement and collaboration
with local stakeholders. This requires both building trust among the parties and concrete positive
incentives for cooperation. Typically, this means: (a) a meaningful role in management; and (b) a
direct stake in the sustainability of the natural resources for the local stakeholders.
Finding a balance between conservation and improving livelihoods will be critical. The core
objectives for the sustainable development of the Danube Delta are the conservation of its
ecological and biodiversity assets, and improvement of the quality of life for its residents. Achieving
sustainable livelihoods and economic development in the core Delta presents many challenges.
Residents are few in number; dispersed over a wide area; relatively old on average (and the
population as a whole is likely to continue to age as young people continue to leave); and
predominantly rural with livelihoods dependent on direct exploitation of the natural resources. The
diagnostic analysis identified both opportunities for development and possible threats.
29
2. Vision for the Danube Delta Region
A vision statement is one of the elements needed to form a forward looking strategic framework
that gives stakeholders a long-term-comprehensive perspective. Community visioning is the
process of developing consensus about
what future the community wants. Vision
statements/descriptions are typically
crafted through a collaborative process
that involves a wide variety of community
residents, stakeholders and elected
officials. The vision for the Danube Delta
Region (2030) is: "An attractive area - with
precious biodiversity and vibrant business
environment, with small/medium scale
economic activities both in traditional and
modern fields - where people live in
harmony with nature; integrating
economies of tourism, farming and fishery;
and supported by urban service centers"
The vision statements presented in the
Introduction is based on a series of 10
consultative workshops, involving over
370 residents and stakeholders. A variety
of interest groups were represented at the
workshops. About 43 percent of the
participants were women, and
stakeholders from all key sectors (local government, tourism, fishing, agriculture) participated.
Emphasis was placed on including the voices of marginalized populations, such as the unemployed
and housewives. Special attention was paid to balancing bottom-up and top-down approaches in the
elaboration of the vision statements by including relevant representatives of the central government
as well as technical views of experts. Many vision statements were collected and woven into one
vision statement for the Danube Delta Region (2030) based on common themes and using the exact
words and phrases of the participants. Two over-arching strategic goals were defined based on the
vision statement: (1) to conserve the unique environmental and natural resource assets through
scientifically-guided environmental management, and by empowering the local communities to be
proactive guardians of this unique global heritage; and (2) to develop a sustainable, green local
economy, capitalizing on the area's comparative advantages, supported by improved services.
3. Needs Assessment
The Needs Assessment builds upon the vision and its strategic objectives for the Danube Delta
Region. It focuses on the types of changes and results that are needed across a number of economic
and social sectors in order to achieve the two strategic objectives. The identified needs include
physical investments, policy and regulatory changes, institutional development and technical
assistance.
Figure 11: Tourism and accessibility were the most
frequently raised issues by communities among the
crowd-sourced project ideas answering questions such as
"where do you want your community and the Delta to be
in 2030" and "what are the opportunities and
constraints" during the visioning exercise.
Source: Consultations during the vision exercise
30
The sector-specific assessments were organized under five pillars: (i) protecting the environmental
and natural resource assets; (ii) improving the economy; (iii) improving connectivity; (iv) providing
public services; and (v) promoting efficiency, affordability and sustainability. While the needs were
mainly defined along sectoral lines, the assessment also highlights common threads and cross-
synergies that were later integrated and captured in this comprehensive sustainable development
strategy. The linkages between the vision, objectives, pillars and sectors are shown in Table 2. Key
needs are summarized in Table 3.
Table 2: The Vision informs the Strategic Objectives, which cascade down into the five Pillars
Vision for the Study Area:
A "living delta" (an area where people live and work) with balanced support for the environment and the
community; a healthy, sustainable local economy - mainly based on nature and culture tourism; and with an
inclusive planning process (residents, governments, businesses).
Strategic Objective no. 1: Conserve the unique
environmental assets through scientifically-
guided environmental management, and by
empowering the local communities to be
proactive guardians of this unique global
heritage.
Strategic Objective no. 2: Develop a green and inclusive
local economy, based on sustainable consumption and
protection, resource efficient, capitalizing on the area's
comparative advantages, supported by improved public
services.
Pillar I:
Protecting the environmental and
natural resource assets
Pillar II:
Improving the
economy 20
Pillar III: Improving
connectivity
Pillar IV:
Providing
public services
Environment,
Biodiversity,
Forests
Climate
Change and
Energy
Efficiency
Disaster Risk
Management
(DRM), and
Pollution
Emergency
Tourism
Fishery and
Aquaculture
Transport
Water Supply
and Sewerage
Solid Waste
Management
Agriculture &
Rural
Development
Information and
Communication
Technology (ICT)
Education
Health
Social Inclusion
and protection
Pillar V: Promoting efficiency, affordability and sustainability (including Administrative Capacity of Local
Authorities, and Technical Assistance for Program Implementation)
Responding effectively to the defined needs will be challenging for the authorities. The local
authorities in the Study Area have limited administrative and financial capacity for implementation
of new and rehabilitated investments, and for their future operations and maintenance. Therefore, a
need for substantial capacity building and support through technical assistance was emphasized in
the report.
20
Formulated as "Seizing Economic Opportunities" in the Needs Assessment. Updated here for consistency with the text.
31
The defined needs will be further prioritized and an implementation action plan prepared in later
stages of the process. The sector-specific needs assessments made a ranking of the needs within the
respective sector. This strategy prioritizes them further. In addition, implementation will need to be
carefully phased. This will be done for the ITI Proposal (due in May 2015) and the Action Plan (due in
June 2015).
Table 3: Summary of Key Needs by Sector
Physical Investment Needs Policy and regulatory needs Institutional Development & Technical Assistance Needs
Pillar I: Protecting the environmental and natural resource assets
Environment, Biodiversity, Forests
. Biodiversity conservation and restoration . Hydrological modelling tools . De-silting works and other hydrological improvements . Ecological restoration, including reforestation . Building monitoring and information facilities . Reducing solid waste pollution in natural areas . Investments to control and reduce the nitrates pollution of waters
. Revision to the DDBR Law
. Enhancements to other laws
. DDBR policy enhancements
. Monitoring and evaluation of the conservation status of species and habitats . Monitoring and modelling of sedimentation dynamics . Modernization of Info Points . Organizing information/awareness campaigns on biodiversity and environmental protection . Establishment of the International Centre for Advanced Studies for biodiversity conservation . FS and TP for projects aimed at restoring damaged natural habitats. DDBR functional review
Energy Efficiency (EE) and Climate Change (CC)
. Investments in improving EE in public buildings, public lighting, households . EE improvements in heating, water, waste, and public transport sectors . Developing a program for promoting the use of renewable energy sources . Establishing a local climate change fund for residents, SMEs . Measures for mitigation of and adjustment to climate change
. Developing local policies and EE monitoring, including incentives . Developing local policies and procedures to monitor GHG
. Performing energy audits of buildings . Drafting mobility plans in transport . Building planning capacity of local councils in the areas of EE and CC . Organizing public education and awareness campaigns
Disaster risk and emergency management in case of pollution
. Developing the necessary infrastructure and purchase of boats, vehicles, to increase response time . Flood protection works . Pollution monitoring equipment
. Elaboration of a methodology for risk assessment . Introduction of a regulation on boats monitoring . Studies related to environmental liability and pollution incident-related data sharing
. Developing an Integrated Disaster Management and Information System (IDMIS) . Risk assessment for floods, earthquakes, coastal erosion and forest and reed fire . Developing contingency plans for disasters . Organizing training and public awareness actions
Pillar II: Improving the economy
Tourism . Improvement of access (roads . Drafting guidelines and . Developing distinct brand for
32
around attractions, signage, paths, docks) and services . Development of tourism infrastructure (info-kiosks, signage, resting places / panoramic views, information centers upgrading) and restoration of cultural sites . Development of accommodation infrastructure (modernization of facilities, camping areas) . Workforce development (training centers for hospitality, guiding, agriculture, crafts, fishing) . Facilities for attractions/visitor services . Restoration of cultural heritage . Development of cultural centers for the intangible heritage promotion and conservation . Functional reconversion of industrial sites and revitalization of urban centers, mainly in Sulina . Supporting SMEs in tourism, in terms of sustainability, quality and durability
standards for transport, destinations, hospitality facilities and services . Ensuring safety, security and health policy frameworks for tourism . Developing policies that allow and support the development of SMEs and entrepreneurship . Destination management policies/guidelines . Ensuring links to national level policies and plans . Review of tax collection system
tourism and related products . Creation of transport providers association . Establishment of strengthened visitor centers and local hotel associations . Ensuring institutional collaboration with upper and lower levels (national, local); intra-sectoral . Development of destination management mechanism . Development of a system for data collection, analysis and dissemination . Design of trails, water routes etc. . Drafting guidelines for accommodations . Performing market analysis / access strategies
Fishery and Aquaculture
. New fishery shelters that offer optimal conditions for temporary housing and mooring . Artificial reproduction stations . Arranging recreational / sports fishing areas . Dredging of waterways and lakes . Renaturation of agricultural polders . Fisheries Zoning . Increasing the added value and competitiveness of fishery and aquaculture
Reduce/eliminate VAT on commercial fishery (revised tax collection system) . Implementing DDBRA Monitoring, Control Surveillance reform plan
. Hydrology/sedimentation modelling . Fish stock assessment . Ensuring and monitoring water quality in aquaculture
Agriculture and Rural Development
. Modernizing facilities for production / collection / processing / marketing of produce . Rehabilitation of irrigation infrastructure . Diversification, increasing added value and competitiveness of agricultural (including eco-agriculture) and non-agricultural activities (cane, renewable energy, traditional sectors / crafts) and supporting entrepreneurship / SMEs in these fields . Fostering consolidation and strengthening the economy of small farms .
. Concession of land to young farmers . Enlarging access to vocational education . Modernizing agricultural quality control systems
. Fostering local community involvement in LEADER . Fostering producer groups . Advisory service and training for farmers/rural workforce promotion and marketing of natural and cultural (movable and immovable) heritage, in rural areas
33
. Conservation and valorization of local natural and cultural heritage, including traditions
Pillar III: Improving connectivity
Transport
.
. Rehabilitation of various county roads . Improvement of inland waterways and ports . Development of the water sports infrastructure (marine and mooring docks) . Tulcea airport modernization Mobility in urban centers . Encouraging private initiatives in transport and logistics
. Drafting of policies for transport concessions, including procurement processes . Drafting regulations for small businesses to transport clients
. Feasibility studies
. Support for public-private partnership (PPP) transactions
Information & Communication Technology (ICT)
. Modernization / expansion of ICT infrastructure across the study area . Purchase of equipment for Public Access Points to Internet (PAPIs) Support for investments made by SMEs in ICT
. Open data policies
. Development of local e-government services
. Facilitation of ICT use
. Development of digital literacy programs . Creating an E-portal
Pillar IV: Providing public services
Water Supply and Sewerage
. Expansion/rehabilitation of water supply and wastewater collection and treatment systems (new or rehabilitated systems) across the study area to improve quality and efficiency of services
. Review of subsidy policies . Feasibility studies (FS) and designs of investments . Capacity building of operators . Preparation of service contracts
Solid Waste Management
. Development of systems for selective handling of waste . Establishment of waste collection points and transport facilities in tourist areas . Purchase of equipment for collecting floating waste . Increasing the recovery degree of waste collected from households and businesses
. Updating national and regional waste management programs . Enhancing regulation, inspection and enforcement in the sector . Drafting subsidy policies
. Institutional collaboration, and inter-city/ community cooperation . Study on financial sustainability . Waste composition studies . Development of public awareness programs
Education
. Providing access to quality primary and lower secondary education for all . Providing an increased access to Early Childhood Education and Care (ECEC) . Creation of virtual classrooms for remote locations (ICT investments) for distance learning . Providing increased access to technical and vocational education
. Support for enrolment and retention in ECEC . Approaches to ensure qualified teachers in all locations . Approaches to bring early school leavers back to school . Incentives for participation in lifelong learning programs
. Plans for access to education
. Improved school, after school programs & student counselling . Improved vocational training . Partnerships between employers and education / training providers . Support to Community Permanent Learning Centers
34
Health 21
. Rehabilitation of buildings; . Purchase of lab and IT equipment; vehicles
22, boats for
emergencies; and shelters near hospitals . Supporting infrastructure for telemedicine . Modernization of sanitary facilities in schools . Building multifunctional centers in Babadag, Sulina and Sf. Gheorghe . Improved, integrated facilities at Tulcea Emergency County Hospital . Rehabilitation of Măcin hospital building, equipment provision, and a palliative center
. Review the provider payment system for primary care services in rural and remote areas . Review the legal framework for ambulatory care within the public hospitals . Linking national telemedicine policy with standards and protocols . Incentives for medical staff using the telemedicine system
. Feasibility studies and designs
. Capacity improvements at local Public Health Directorate (PHD) . Building diagnostic laboratories . Training of emergency response staff . Building skills in public health laboratory management . Information/education campaigns . Ambulatory services, long term care and palliative capacity development
Social Inclusion (Needs from World Bank, Roma Report (2014))
. Development of early childhood (0-6 years) institutional infrastructure in communities with high share of Roma population . Making schools more friendly for all children . Establishment of integrative and multifunctional community centers . Urban regeneration of disadvantaged neighborhoods (integrated interventions on the access of population in these areas to education, health, housing and employment) . Social and youth housing . Development of social enterprises in disadvantaged areas
. Implementation of measures in the sectors of education and health, housing, employment . Community grants as part of educational intervention . Regulating housing ownership rights (cadaster)
. Involving parents in early childhood education partnerships . Implementing formal and non-formal education measures beyond school hours . Increasing participation of Roma girls at all levels of education . Developing human capital among Roma women . Information / education campaigns (civic spirit), including in development planning
Pillar V: Promoting efficiency, affordability and sustainability (including Administrative Capacity of Local Authorities and Technical Assistance for Program Implementation)
Affordability of Households
. Development of subsidy policy . Promoting a strong sense of ownership on the processes and outcomes of interventions among the beneficiaries
. Improving household access to public services
Sustainability . Formulating (O&M) operating and maintenance policies
. Review of O&M requirements, responsibilities and capacity
Administrative Capacity
Development of facilities, purchase of vehicles, office equipment
. Improving overall project management capacity . Strengthening the coordination between the public institutions in biodiversity conservation and
. Technical assistance support for priority administrative functions, including (but not limited to) updating/completing various territorial management instruments, such as
21
Revised from the Needs Assessment original report 22
Medical caravan, off-road vehicle with a high capacity for epidemiological situations, boat for surveillance of the public health system and vehicles equipped with cooling system for transportation of vaccines
35
ecological reconstruction of the Danube Delta . Facilitating public access to information and public services and increasing transparency of public services (e-government)
town/village plans, urban/village data banks, cadaster and land book etc.
Program Implementation
Development of facilities, purchase of vehicles, office equipment
. Promoting an effective and efficient implementation and monitoring/control system . Providing specific support measures relating to investments within each Operational Program
. Technical assistance support, including for (but not limited to) project administration (drafting general documents; technical documents; procurement; accounting; environmental assessment; construction supervision etc.)
36
III. Strategy
1. Main themes and directions
This section outlines the pillars and strategic principles for the development of the Danube Delta
region, with a horizon 2030. The strategy strikes a balance between protecting the unique natural
and cultural values of the DDBR, and meeting the aspirations of the region's inhabitants to improve
their living conditions and seek better economic opportunities.
Five Pillars
The five pillars stem from the two strategic objectives of environmental protection and economic
development. The pillars vertically cascade down the objectives to the sector-specific interventions
as exemplified in Table 2. The pillars were identified in the Needs Assessment stage and are an aid to
structure the report. The pillars reinforce each other strongly and are very tightly interwoven.
Pillar I: Protecting environmental and natural resource assets
At the center of the region's comparative advantage is its environmental wealth. While
posing a constraint to some economic activities (that are not being promoted within or near
the Danube Delta Biosphere Reserve), it also provides significant opportunities for bringing
greater prosperity to the region if carefully harnessed, through income generation based as
much as possible on non-consumptive use of the living natural resources and preservation of
local cultural traditions. Restoring the natural environment, partly destroyed by man-made
activities over the past 50 years, and improving the management of these environmental
and natural resource assets, is therefore a critical first step. Over the longer term,
sustainability will depend on local residents playing an active role as guardians and
managers of the Delta's environmental and cultural assets in partnership with DDBRA.
Pillar II: Improving the economy
The environmental and cultural richness and diversity of the region bring economic
opportunities to the tourism industry with co-benefits to local fisheries and aquaculture,
agriculture, and SMEs such as handicrafts, boat making, and tools for fishing, etc. With more
diversified attractions and nature programs, not only the number of tourist but also the
duration of their stay will increase and provide revenue to local residents, both within the
Biosphere Reserve (particularly in the core Delta) and its neighboring cities/towns and
communes.
Pillar III: Improving connectivity
Improved connectivity to enhance movement of people, goods and information will bridge
the divide between cities and remote locations, and lagging and leading regions (e.g. Danube
Delta Region and Constanța, one of the growth poles of the country). Improved ICT
infrastructure and faster travel both within and between regions will support the tourism
development. It will also improve business opportunities by connecting sellers to markets
37
and create opportunities for more innovative service delivery in health and education.
Accessibility to critical service points, especially among core Delta locations, will be
improved by road, boat transport, and better internet services.
Pillar IV: Providing public services
Access to basic urban services (water, sanitation, and waste disposal), health clinics and
schooling in the region is uneven as is their respective quality. Improving these services,
partly through more cost effective and innovative approaches using ICT, will be essential to
improve health and social mobility. Addressing major service gaps, especially with respect to
water and waste, will also support tourism development.
Pillar V: Promoting efficiency, affordability and sustainability.
Further empowering local governments to oversee the public service delivery is an essential
factor that would help the development of the Study Area, since the alternatives
(concessions, outside institutions, etc.) are less accountable to those that are presumed to
benefit from these investments. If neither households, nor local governments can sustain
the level of local services in the area, the supplemental finance through targeted subsidies
needs to be provided by central government, or services need to be tailored to affordable
levels. Not only local authorities, but the capacity of all institutions23 to administer the type
and scale of projects envisaged needs to be strengthened. Limited budgetary resources and
challenges in retaining staff in remote areas (e.g. in the health and education sectors) has
put stress on the administrative systems. The need for effective coordination of
interventions will present additional administrative demands on beneficiary institutions, and
some new organizations are proposed to be established (for example, a destination
management organization for the tourism sector). A comprehensive program on capacity
building and technical assistance will need to be administered, that is supportive of future
functions, incentives and accountabilities.
These five pillars are not only providing direction, but also demonstrate complementarity. The
tourism potential will remain constrained, unless urban services (water, sanitation and garbage
collection) and tourism infrastructure are improved. Services such as health and education will have
to rely increasingly on virtual communication tools, as practiced in other remote locations in the
world. Increasing the speed and access of ICT services will enable better provision of health services
and schooling. More tourism benefits will emerge, once more attractions and services - from
aquaculture, recreational fishing, and organic farming to guided tours - are developed. The natural
and cultural assets of the Danube Delta Biosphere Reserve are the key attractions of the region and
will drive its sustainable development - restoring, protecting and enhancing these assets is therefore
of utmost priority.
Five Cross-cutting Strategic Principles
23
The main institutions benefiting from EU funds investments in the analyzed area are Tulcea County Council, 40 local authorities (including Tucea city and 4 other cities), DDBRA and other central government entities located in the region. In addition, it is estimated that there will be beneficiaries from the private sector.
38
In order to achieve the improvements outlined under the five pillars, investments, technical
assistance, capacity building, regulatory and policy definitions, as outlined in the sector summaries,
are guided by the following cross-cutting strategic principles.
Principle A. Empowerment of inhabitants
Protecting environmental and natural resource assets and reducing the threat of unsustainable
resource consumption, including fishery, need to rely on cooperative solutions that provide
incentives to residents to safeguard the local `commons', rather than relying on command-and-
control regulations that have high cost and limited effectiveness. This generally means providing
some level of `ownership rights' accompanied by responsibility and accountability Inhabitants will be
economically empowered through the opportunity to acquire better-paid skills that move them
towards higher-value-added, non-consumptive use of the environmental resources. This transition
will also involve moving away from an expectation of and reliance on government subsidies to
increasing self-reliance through developing business opportunities and choosing service providers.
As the proposed adjustments will require an unprecedented ability of inhabitants to reinvent
themselves, sizeable technical assistance needs to be imparted to help in this transition and to assist
structured learning.
Principle B. More transparent, accountable and inclusive institutions
Empowerment needs to be accompanied by institutional structures that provide opportunities and
mechanisms for people to engage in decision-making processes that affect them. As the key
governing bodies in the area, DDBRA and local governments need to develop more effective
platforms for public participation and cooperation and to become more accountable and
transparent, in order to gain greater respect and support from residents and resource users.
Transparency will also be important in ensuring effective competition and efficient use of
instruments, such as concession agreements and extraction permits to provide local governments
and residents with the maximum economic value from the use of public resources.
Principle C. Making services affordable by enhancing efficiency
Basic services need to be provided at the lowest cost and in adherence to the standards required
under EU or Romanian law. Due to low economies of scale in many localities of the Study Area, this
will require, for some sectors, to devise more innovative approaches to deliver the same outcomes.
For health, it will mean reliance on preventive health provision by medical caravan, ICT-based
consultations, using medical doctors in training (resident doctors), and developing shelters to avoid
unnecessary hospitalization. For education, it will imply consolidation of schools, as applicable, with
commensurate transport options to schools to enable the consolidation, and virtual classrooms for
remote locations. For wastewater, it entails low-cost easily maintainable and affordable technologies
at the household or village level, depending on the population size, and for water it will engender
low-cost collective solutions for which there is clear demand and willingness to pay. In essence,
inefficiencies translating into increased cost - triggered by either choice of technology, approach, or
administration - should not be passed on to households or government.
39
Principle D. Affordability through income generation
Generating economic opportunities and jobs is the best solution
to address affordability constraints. A menu of assistance - from specific skill development, in-
job training to small grant schemes to jumpstart micro businesses, such as guided tours, flake ice for
fresh fish and other food storage, small agricultural and fish processing, and other businesses - will be
designed to generate income within the tourism, fishery and agricultural sectors. Advisory services
will guide strategic decisions on farm consolidation and modernizations, and prepare small
pension/hotel owners to cater to higher-end tourism that would bring more revenue. All income
generation activities will be based on market principles, but incentives to small business pilots can be
provided, with an appropriate evaluation framework to enable learning and replication. Moreover, as
cost-recovery regulations move to more market-based principles, appropriate social safety nets need
to be instituted to safeguard the well-being and minimum consumption of the poorer or
disadvantaged segments of the population.
Principle E. Territorial integration
The region encompasses human
and natural habitats, some with high
ecosystem values in need of protection.
Comprehending the region as an integrated
territory that offers location specific
opportunities is important to meet
conservation objectives without
compromising on economic development
or living standards. It will set the stage for a
polycentric and balanced settlements
system, with high quality urban functions,
that would extend services to their rural
hinterland.
Applying the cross-cutting Strategic Principles to each Pillar
The five pillars (environment, economy, connectivity, services and efficiency) structure the analysis
"vertically" by grouping the relevant sectors under their headings. The Strategic Principles, on the
other hand, are cross-running "horizontally" and motivate interventions in all pillars. Examples of
how the Strategic Principles are applied in each Pillar are presented in Table 4. For example,
"Strategic Principle A. Empowerment of inhabitants" implies that within the "Pillar II. Environment”,
the role of local residents in managing DDBR is consolidated, while in the "Pillar II. Economy" it
would suggest the ownership of the fishery resource instead of the current cherhana system. In
"Pillar III. Connectivity", local residents are empowered through better connection to markets and
ideas. In "Pillar IV. Services", local residents are informed and empowered consumers rather than
recipients of subsidies.
Box 2: Territorial Integration Crosses Administrative
Boundaries: the Four Constanța communes.
The territorial integration promoted under this
Strategy crosses administrative boundaries. The four
Constanța communes - Săcele, Istria, Mihai Viteazu
and Corbu - hold the same importance as any other
location in the study area. They will benefit from any
study area wide interventions (e.g. improving the
economy) as well as demand-driven projects (e.g.
projects with private sector participation). In
addition, these four communes are addressed in the
water, tourism and transport sections with targeted
actions.
40
Figure 12: The Strategy is Structured into Five Vertical Pillars and is Guided by Five Strategic Principles.
41
Table 4: Examples of proposed approaches and action plans for sustainable development of the Danube
Delta region, based on the integration of the main themes and guiding principles
Five Pillars
Five Strategic Principles:
Pillar I: Protecting the environmental
and natural resource assets
Pillar II: Improving the
economy
Pillar III: Improving
connectivity
Pillar IV: Providing public services
Pillar V24
: Promoting efficiency,
affordability and
sustainability
Principle A. Empowerment of inhabitants
Increase local inhabitants' role in the planning and implementation of the management of DDBR and its living natural resources
Fishery: allocate fishing and fish sale rights to resident fishermen (property rights) instead of current cherhana system
ICT: will connect people better to markets, ideas, and services to empower them to carry out economic activities
Services: Informed and empowered consumers of services, as opposed to recipients of subsidies
Services: Affordable and sustainable solutions provide the inhabitants with access to services without reliance on subsidies
Principle B. More transparent, accountable and inclusive institutions
Strengthen formal role of local residents and other stakeholder groups in DDBRA planning and management processes
Fishing: regulate fishing through area and season-based permits, not through measuring catch; tax fishers' income through sales receipts, not by restricting whom they can sell to.
Transport: Road planning benefits from community involvement
Agriculture and Rural Development: Inclusive process of local consultation in selecting, ranking and implementing small rural infrastructure projects
Accountability promotes financial and administrative sustainability
Principle C. Making services affordable by enhancing efficiency
Improve DDBRA revenues through an efficient park fee collection mechanism
Tourism, Fisheries: increase business management and operations capacity of local business owners
Transport: Enable low-cost and frequent transport solutions to service points (accessibility)
Wastewater: promote use of flood tolerant low cost technical options in low density population areas
This pillar and this principle have the same objectives
Principle D. Affordability through income generation
Job generation for environmental management, both in private and public sector (clean up, waste recycling, other)
Tourism, Fisheries, Agriculture: Facilitate development of small/micro enterprises
ICT: Improved affordability of services and products directly through ICT access and indirectly through income generation from better connectivity
Income generation empowers inhabitants to afford the services, which are themselves designed with affordability as a goal
Higher economic activity means better revenues and thus better sustainability
Principle E. Territorial integration
Strengthen the regional identity and maintain the natural and cultural diversity by conservation and development
Tourism: develop rich portfolio with different but complementary tourism attractions throughout the region
Increase connectivity of the region with national, European and other international territory
Connect less densely populated areas to service centers and markets
Water supply: Through territorial integration, local water supply solutions are
24
Pillar V: Providing Efficiency, Affordability and Sustainability has transversal implications, as evidenced by Table 2.
42
intervention. (e.g. core Delta vs adjacent communes)
Assure equal access to public infrastructure and knowledge
made more affordable
Integration and Synergies
Significant synergies are achieved by the integrated approach to the strategy development. By the
integrated planning, the resulting strategy and projects are closely integrated. The strategy aims to
achieve the two overarching strategic objectives. Each sector-specific objective supports the
overarching objectives. The interventions designed in each sector are thus strongly oriented towards
the overarching objectives and bring synergies through the integrated design. Higher quality nature-
based tourism and strengthened environmental management reinforce each other and are
supported by a transition towards recreational fishing and improved services.
Integration at the spatial, functional and implementation level is expected to contribute to high
synergies. Spatial integration will strengthen the linkages between urban and rural areas, for
instance. Functional/ sectoral integration is necessary as well because sector-specific problems
frequently turn out to require multi-sectoral solutions. This study has a sufficiently broad technical
focus to resolve such issues. One example would be that seismic, energy efficiency and façade
improvements to buildings should all be done together for maximum return on investment.
Implementation planning will ensure appropriate sequencing of interventions, for instance water
and sanitation improvements may be done in conjunction with road rehabilitation.
The table below shows schematically sector-specific objectives as defined for each pillar.
43
Protecting the environmental and natural resource assets
Improving the economy Improving connectivity Providing public services Promoting efficiency, affordability and sustainability
Biodiversity and ecosystem management
Tourism Transport Water supply and sewerage systems and integrated water management
Administrative capacity and program management
Developing of the planning and biodiversity and ecosystem management capacity
Preserving, protecting and capitalizing the natural heritage and combating/reducing the impact of polluting anthropic activities
Developing research, education and training in biodiversity and natural heritage protection fields
Supporting eco-friendly SMEs
Developing and promoting DD as an integrated tourism destination, with a rich portfolio of sustainable tourism products and services, by capitalizing the natural and cultural heritage
Establishing a local destination management mechanism that is based on active participation and ownership of local stakeholders
Encouraging local population to run small tourism businesses that meet quality and sustainability standards, and that are economically viable
• Increasing territorial connectivity to ensure access to markets in Tulcea, the rest of Romania and the European Union; equal connectivity of enterprises, individuals, and goods in the DD territory, taking great care to protect the existing environmental heritage
• Increasing accessibility in the core DD area to support development of tourism and fisheries, and the mobility for residents in sparsely populated areas.
• Improving health and protecting the environment by minimizing emissions and the consumption of resources (including energy) by the transport system
• Providing potable water to meet quality of life standards and economic development objectives, subject to demand, financial feasibility, and operation and maintenance constraints
• Supporting the collection of wastewater in a centralized manner (subject to demand, financial feasibility, and operation and maintenance constraints) and moving away from the current use of pit latrines which constitute a health hazard in prone to flood areas
• Adopting treatment methods of centrally-collected waste water either in a conventional or a more low-cost way
Providing efficient and cost-effective public services
Improving evidence-based strategic and budgetary planning across all levels of governance in the DD region in order to support environmental and economic objectives
Increasing participatory decision-making in synergy with the environmental and economic objectives
Energy efficiency Fishery and aquaculture ICT Solid waste management
44
Increasing the energy efficiency of the study area in economic, residential and public buildings and public service provision fields
Increasing the use of renewable energy sources within the study area
Improving local expertise, information availability and energy efficiency awareness
Correcting the ecological imbalance among predator and prey fish species, and restoring environmental quality.
Increasing the economic value of capture fisheries and aquaculture.
Increasing quality job opportunities in the fishing sector.
• Providing full access to broad-band internet network
• Supporting widespread private, business and public use of ICT
• Ensuring synergies with other sectors to promote transfer of knowledge, services and economic development
• Improving the recycling rate so as to achieve the corresponding EU target of 50% which Romania is committed to
• Implementing of waste reduction, reuse and recycling in local communities in order to assure efficient and sustainable waste management, resource saving, environmental protection, and tourism destination development
• Management of floating waste material
• Increasing the capitalization degree of waste collected from households and businesses
Climate change Agriculture and rural development
Health
Developing a climate friendly and resilient area by integrating climate change into local public policies and planning
Promoting development towards a low carbon economy through targeted adaptation measures and
Promoting integration of agri-food producers (especially organic) into the value-chain
Supporting diversification of agricultural and non-farm activities for job creation by encouraging active involvement of local
Improving the access to primary health care (PHC) services based on prevention and early detection and treatment of chronic diseases
Supporting an effective control of epidemics, early warning and coordinated response, and risk factors surveillance,
45
by reducing GHG emissions
Developing partnerships and financing instruments in the field of climate change
Raising the awareness of the population and businesses on climate change adaptation
communities
Promoting young farmers' access to land to enable improved revenue flows to the local population
Preserving, protecting, capitalizing and promoting the natural and movable and immovable cultural heritage, , in rural areas
Improving the local population/farmers' access to information regarding the possibilities of tapping CAP funds - create a special agriculture extension team for the Danube Delta
Improving health infrastructure for primary, secondary and tertiary health care, and the related service delivery system adjusted to modern technologies
Disaster risk management Education
Reducing vulnerability to all risks, while improving the quality of emergency services, based on national and county risk assessment, and develop and maintain an adequate response capacity
Assessing the main risks, elaborating risk maps for earthquakes and floods, and implementing projects to reduce these risks
Elaborating a County
Providing lifelong learning opportunities to create labor skills for the 21-st century economy
Supporting secondary and vocational education that prepare students for the global knowledge economy and for the specificities of the local economy
Increasing the quality of the primary education and early-education systems
46
Integrated Information System for the Management of Emergency Situation as part of the National Information System for Disaster Management
Pollution emergency Social inclusion and protection
Developing an advanced information management system for hazardous wastes which may cause a pollution spill and represents a threat to the DD
Reducing pollution risks and the response time by developing a prevention plan, providing adequate equipment and training of human resources
Reducing labor related and human capital disparities among Roma people by providing improved integrated services in all dimensions and aspects of exclusion (education, health, housing, employment)
Preserving the cultural heritage of the ethnic minorities in the study area.
Improving social outcomes by making social protection programs more relevant and effective in the study area
47
2. Spatial Distribution
2.1 Introduction
The objective of this chapter is to present the spatial structure of the Study Area (Danube Delta
Region) and the distribution of investment needs between the Delta (DDBR) and its neighboring
areas. Section II. 3 Summary of Sector-Specific Priorities and Cross-Sectoral Synergies presents the
distribution of interventions by sector, with brief indications of location (area).
The study area represents a mix of inhabited areas, with large demographic, density and socio-
economic disparities. Communities are dispersed inside the Biosphere Reserve (particularly in the
core Delta) and outside (neighboring areas), most areas having high ecological value.
Key area characteristics considered in the development program are:
(a) Urban areas with diverse economic activities (Tulcea city and four towns)
(b) Areas in peripheral locations, with spatial isolation and limited accessibility to Tulcea city and
the towns;
(c) Areas in demographic decline (depopulation);
(d) Areas with low economic activity (low employment opportunities, and increasing poverty);
and
(e) Areas with unique natural heritage, with environmental sensitivity, and high potential for
biosphere research and tourism development.
The spatial development considers the role of cities/towns and their relationship with the rural areas
and protected areas. The proposed strategy and the related list of priority projects focus on: (a)
protection of the ecological value of the DDBR; (b) increased competitiveness of both the major built
up areas (Tulcea city and the four towns) and the agriculture sector in the rural areas (particularly in
the neighboring area); (c) enhanced linkages between the urban areas; and (d) support for spatial
urban-rural cohesion, including through public infrastructure development.
2.2 Functional structure
The Danube Delta Region has a mixed functional structure with different economic activities taking
place in different sub-areas. The overall economic profile is characterized mainly by tourism, fishery
and agriculture, linked to the natural resources, with more diversified functions in the urban centers,
where most industrial and service sector activities are located. Four main sub-areas can be identified
(see map 1):
(a) areas with significant urban functions - the corridor Măcin - Isaccea - Tulcea - Babadag, along
the national road DN 22, continuing southward to Constanța;
(b) areas with mainly agricultural functions - located in the northern part of Tulcea County
(Pardina, Chilia Veche, Ceatalchioi, Maliuc, Somova, Niculițel, Frecăței, Văcăreni, Mihail
Kogălniceanu, Luncavița, Grindu, Slava Cercheză, Sarichioi, Baia, Beștepe, Jurilovca,
Mahmudia, Mihai Bravu, Murighiol, I.C. Brătianu, Jijila, Smîrdan);
(c) areas with mainly fishery activities - around the Razim lake, along the waterways of the core
Delta, and on the Black Sea Cost);
(d) areas with significant tourism activities (mainly in the Delta, where diverse tourism products
48
are provided)25: rural tourism (Sf. rural tourism (Sf. Gheorghe, Crișan, Caraorman, Murighiol,
Mahmudia, Chilia Veche, Periprava); recreational tourism - sports and sailing (Sulina, Crișan);
recreational fishery tourism (Razim lake, Caraorman, other communes and on the Black Sea
coast); and sea-side tourism (Sf. Gheorghe, Sulina, Perișor-Portița).
Figure 13: Functional structure of the Danube Delta Region
2.2.1 Urban areas and their surroundings
The urbanization degree of the region is low, considering the demographic and the economic
indicators. The city/town network contains one city and four small compact towns, each with their
own character and profile. The urban network has Tulcea city26 as a focal point, connected on land
with the towns of Babadag, Isaccea and Măcin27, and on the Danube River with the town of Sulina28.
The highest demographic density is found along the corridor Babadag - Tulcea - Măcin, of about 50
inhabitants/km².
Opportunities exist for urban-rural cooperation based on the settlement specific economies, culture
and nature. Tulcea, Babadag, Isaccea and Măcin attract the surrounding communes, creating small,
incipient interconnected areas, capitalizing on land reserves and tourism attractions. Sulina is the
gate city from the Black Sea, connected with Tulcea through the core Delta by the Sulina channel.
25
There is significant tourism potential in other areas too, e.g.: Măcin National Park, Razim-Sinoe lagoon complex etc. 26
Tulcea is a medium-sized city with an estimated number of 90,000 inhabitants 27
Cities have between 5,000-10,000 inhabitants. 28
The corridor serves an area with a very low density, less than 5 inhabitants/km²
49
The development of the region is particularly influenced by the social and economic network of the
existing city/towns. It will aim to strengthen the urban system and its hinterland through a package
of measures. Proposed investments support each other to assure coherence of the development.
Anticipated continued urbanization is supported by a variety of measures, such as increasing
connectivity and mobility in the region, and enhanced accessibility to/from Constanța and
Galați/Brăila. From a livability perspective, investments in basic urban services, healthy housing
conditions, good and safe environment, and attractive public space will be addressed. For economic
development of the urban areas, public investments will enable job creation and sustain local
budgets.
2.2.2 Rural areas
The Danube Delta Region (the study area) is mainly rural, with dispersed communes. In the
neighboring area, they are easily accessible from one another via the road network, while in the core
Delta they are in most cases only connected by waterways. The majority of communes have
between 2,500-3,000 inhabitants, only four of them having more than 5,000 inhabitants, being close
to the towns of Măcin and Babadag. In the core Delta, the communes have only 500 - 2,000
inhabitants, usually distributed between 2 to 4 villages.
The rural space is complementary to the urban areas, offering valuable landscape and natural
conservation and recreational assets. In these areas, the diversity and identity of the landscape need
to be protected, and investments need to add value to the existing rural fabric; for example
rehabilitation of tangible historical and architectural assets, and conservation of ecological
infrastructure. Investments in public infrastructure are needed to improve the living standard for
local communities and for tourists. Such investments will also support the rural economies - mainly
fisheries and agriculture.
2.2.3 Natural conservation areas and buffer zones
The DDBR is sparsely located, along the Danube channels, around the Razim-Sinoe lake system, and
on the Black Sea coast. The area is mainly State public domain, administered by the Danube Delta
Biosphere Reserve Administration (DDBRA). Only 19% of the territory belong to local public
administrations and private owners. The typology of the area includes fully protected areas (50,904
ha), costal buffer zones (103,000 ha), deltaic buffer zones (119,996 ha) and ecological reconstruction
areas (101,695 ha). As a World Heritage site, the DDBR requires investments for conservation of
biodiversity and landscape; water and land protection; monitoring and improvement of water
quality; and for risk management.
2.3. Spatial development
The territory has two major development axes. The North-South development axis, connects major
urban areas - Constanța (national growth pole) and Tulcea, Brăila, Galați (national development
poles) assuring connectivity with the national territory, and increasing the accessibility from the
extended TEN-T corridor - Constanța-Varna (Bulgaria). The East-West development axis has Tulcea
city as a focal point and the Chilia Veche, Sulina and Sfântu Gheorghe as major destinations in the
core Delta, requiring particularly prudent interventions considering the rich natural resource assets.
The spatial development needs to respect the unique profile of the Danube Delta Region and
enhance the spatial diversity and coherence of the areas. The European nature policy plan, the EC
50
Bird and Habitat Directive, and European cultural heritage actions, form a solid framework for
protection of particularly sensitive areas of the Delta.
The Delta (DDBR): The ecological significance of the Delta requires careful management. The
development of the area will integrate initiatives and actions which both preserve the vitality of the
ecological system (nature conservation) and create healthy living condition and space for economic
activity (particularly in tourism, aquaculture, fishing, and agriculture).
The Neighboring Area: This space has historically combined living, working and nature features. The
development of the area should sustain infrastructure improvements, the diversity and quality of
the space and living conditions, increasing the attractiveness of the area, and sustain social equity. It
will distinguish and strengthen the various development centers. In conjunction with energy
efficiency improvements, urban development will include measures which increase the
attractiveness of the built-up space, promote the cultural heritage, and increase land/space supply
for new businesses. Rural area development should be planned for integrated use, taking advantage
of the variety of agricultural activities, landscapes, and recreational assets.
Settlement network: The future development of the Danube Delta Region reflects a polycentric
perspective with concentration of people and activities (see map 2). The model has three levels of
centers that play important roles in the territory:
1. Urban centers of regional importance - Tulcea City (having a metropolitan and service center
influence on the neighboring localities, and playing a very important regional role through its
airport, river terminal, and railway in terms of access to the Region as a tourist destination)
2. Urban centers of county importance - Babadag, Măcin, Isaccea, and Sulina (acting as
transport/service nodes, and locations for various economic activities)
3. Rural centers of local influence - including Sf. Gheorghe, C.A. Rosetti, Chilia Veche and
Luncavița, Murighiol, Sarichioi, Jurilovca, Baia, Mihai Viteazu, Istria, Săcele, Corbu.
This settlement network offers opportunity for development of both built up and rural areas,
enhancing the economic and social connections. The neighboring area should be planned for further
spatial integration, with necessary transport connections to facilitate operations at regional scale,
including for the tourism sector.
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Figure 14: Polycentric perspective of the Danube Delta Region
3. Summary of Sector-Specific Priorities and Cross-Sectoral Synergies
This section presents the rational for the suggested development interventions, presented by
pillar and sector, while discussing important cross-sectoral linkages. Each sectoral summary starts
with the relevant sector-specific objectives, which support the two overarching strategic objectives,
followed by motivation for the intervention and a table of several priority projects, programs or
interventions. More technical details for each sectoral summary extracted from the Needs
Assessment stage of the Strategy development process are presented. Further technical justification
can be found in the Needs Assessment report.
52
Pillar I: Protecting the Environmental and Natural Resource Assets
This sub-section identifies the needs for a better management of the environmental assets in the
study area and of existing risks linked to potential pollution incidents that could have major
negative impacts on the ecosystem. The management and restoration of environmental assets is
seen as a mean for balancing conservation with sustainable use, and the promotion of economic
development. This section also identifies the need to promote climate change mitigation and
adaptation actions. These actions are expected to contribute to the conservation of a global public
good (climate) and to the prevention/mitigation of risks linked to an increase in the frequency or
scale of natural hazards (in particular linked to floods). The improvement of energy efficiency in
some of the municipalities in the study area is presented as one of the major needs and win-win
action for climate change mitigation.
Biodiversity and Ecosystem Management
The DDBR's status as a Biosphere Reserve means that priorities for action are based on the need
to achieve a sustainable balance between the equally important and inextricably inter-connected
objectives of protecting biodiversity and natural ecosystems and processes on the one hand, and
meeting the social and economic needs and aspirations of its residents, on the other. Due to the
legacy of past actions such as construction of canals, deforestation, over-fishing of valuable species
and introduction of invasive alien species, management challenges include not only maintenance,
but also restoration of key ecosystem elements and functions.
The first priority in this "sector" is to achieve the best possible understanding of the complex and
dynamic delta ecosystem, based on accurate and up-to-date data for use in "state of the art"
predictive models, particularly with regard to hydrology and sediment flow. Such models are
essential for anticipating the system-wide impacts of interventions such as dredging and removal or
construction/restoration of canals, dykes and dams in particular areas, for purposes such as
maintaining or enhancing navigation and access, restoration of aquatic habitat and flood
management. Flood management provides an excellent example of the management challenges, as
seasonal flooding is an essential natural process in a delta ecosystem, yet flooding of some areas
must be prevented to protect residents' lives, property and economic infrastructure. While some
areas must continue to be protected through physical infrastructure such as dykes, the overall flood
management strategy should emphasize a "land management" approach in which flood-prone areas
are maintained in a natural state, or in land uses that tolerate and help to contain flood waters.
Equally important are accurate data and effective management approaches for key species of flora
and fauna, including endangered and threatened species of national, regional and global
Sector-specific objectives
Developing of the planning and biodiversity and ecosystem management capacity
(including monitoring)
Preserving, protecting and capitalizing the natural heritage and combating/reducing
the impact of the anthropic polluting activities
Developing research, education and training in biodiversity and natural heritage
protection fields
Supporting eco-friendly Small and Medium Enterprises (SMEs)
53
conservation significance as well as the valuable and naturally abundant "living natural resources"
upon which the area's economy is based. While DDBRA has the primary responsibility to plan and
implement "science-based" management of the DDBR, this can only be achieved in the long term
with the cooperation and support of local residents and resource users, who in turn must have the
information, understanding, economic opportunities and appropriate incentives to support
ecological and biodiversity protection and sustainable natural resource management.
Priorities for ecosystem and biodiversity management overlap and provide important synergies
with key economic sectors such as tourism and fisheries. The area's unique natural environment
and biodiversity and cultural heritage are recognized as the main attractions on which a modern
sustainable tourism industry can be developed. Improving the aquatic ecosystem and water quality
is essential for restoring healthy populations of fish, including the large predatory species that are
the basis for commercial and recreational fishing and cage-based aquaculture. Strong synergies also
exist with sectors such as climate change adaptation (e.g. sustainable flood management), and basic
service provision (e.g. improving and maintaining water quality, solid waste management, etc.)
Based on all the above, priority actions for this "sector" include: (i) financial and technical support
for monitoring/data collection and system modeling, and for implementation of essential
management activities such as targeted dredging, infrastructure management (including both
maintenance and selective removal for re-naturalization of key wetland and deforested areas), and
protection and sustainable management of species of conservation and/or economic importance; (ii)
supporting development and ecological management of sustainable tourism, e.g. through
demarcation of zone boundaries (e.g. for exclusive core protected areas) and improvement of visitor
information services; (iii) policy, regulatory and institutional reforms and capacity building to provide
greater incentives, better platforms, and the necessary knowledge and institutional structures for
residents, resource users, DDBRA and local authorities to become more effective and supportive
partners in the DDBR management (both planning and implementation); (iv) urgent "territorial
management" actions such as local urban development planning and cadastral registration of public
buildings of national interest; and (v) enhancing DDBR facilities to support national and international
research and education in river delta ecology and biodiversity conservation and sustainable use (e.g.
development of proposed International Center of Advanced Studies on Danube - Danube Delta -
Black Sea).
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Table 5: Biodiversity and Ecosystem Management: Types of Priorities and Justification
Type of intervention Location Source of
funds Justification
Purchase of equipment needed for physical interventions to restore natural water circulation and key habitat areas.
The whole DDBR territory
LIOP
Priority Axis #4
(except for dredging which is a maintenance activity)
This intervention meets the need identified in the Needs Assessment Report to support the goal of preservation and restoration of the natural environment and globally significant biodiversity.
Removing some of the obstacles to water circulation that have been put in place over the past 50+ years in order to bring closer as much as possible the current model of water flows throughout DDBR to the natural pattern that existed before the dam and drainage works carried out in the last century is expected to improve water quality and natural terrestrial and aquatic habitats by lowering turbidity and eutrophication. It mainly involves dredging / excavation works to reconnect facilities / agriculture / aquaculture / forestry polders that are no longer used for their initial purpose (re-naturalization), to the natural hydrological regime, desilting clogged / closed ponds, channels and lakes in the Danube Delta. Restoration of water circulation in the agricultural polder in the I.C. Brătianu area would reduce water pressure on protection dykes, allowing Danube flood waters more space in which to spread out. There are several locations (Sinoe-Istria-Nuntași, Razim-Sinoe etc.) where it is clear that de-silting is urgently required and should be initiated or continued based on existing information. Hydraulic works are included for the restoration of the brackish regime of the Sinoie Lake in the Razim-Sinoie lacustrine complex
Restoration of ecosystems and natural habitats within the "Natura 2000" network , by ecological restoration works in the lakes of the natural lacustrine complexes affected by alluvial processes caused by human intervention
Tulcea, Sulina, Sfântu Gheorghe, Pardina, Ceatalchioi, Chilia Veche, Mahmudia, Murighiol, C.A. Rosetti, Maliuc, Crișan
LIOP
Priority Axis #4
This intervention meets the need identified in the Needs Assessment Report to support the goal of preservation and restoration of the natural environment and globally significant biodiversity. Reversing some of the obstacles to water circulation that have been put in place over the past 50+ years in order to bring closer as much as possible the current model of water flows throughout DDBR to the natural pattern that existed before the dam and drainage works carried out in the last century is expected to improve water quality and natural terrestrial and aquatic habitats by lowering turbidity and eutrophication. It mainly involves dredging / excavation works for desilting some lakes in the natural lacustrine complexes: Gorgova-Uzlina,
55
Type of intervention Location Source of
funds Justification
Sontea-Fortuna, Matita-Merhei, and Rosu-Puiu, affected by the rapid silting processes due to human intervention in their operating mode. There are necessary priority interventions for the restoration of affected ecosystems and habitats as well as for the restoration of populations of affected species. Extending water habitats for fish and birds species could be achieved rather easily through wetlands restoration. According to DDBRA, a decrease in the populations of these species was noticed, and therefore, previous protection/ conservation programs (implemented insufficiently due to lack of funds) should be continued and intensified. Necessary physical investments are, for example, for securing and improving the conditions of reproduction in the breeding sites, and for ensuring good protection of the colonies of these species; in parallel with soft interventions like an integrated monitoring system for the entire area.
Reconstruction/restoration of natural habitats affected by the non-environmental activities in agricultural, fishery and forestry polders
Whole area of DDBR
LIOP
Priority Axis #4
This intervention meets the need identified in
the Needs Assessment to support the goal of
preservation and restoration of the natural
environment and of the globally significant
biodiversity.
This intervention aims at restoring natural
habitats affected by dams and drainage works
done in abandoned fisheries and agricultural
facilities, that are no longer used, in whole or
partially, with the purpose for which they were
built (A.P. Stipoc, A.P. Murighiol, A.P. Perisor,
A.P. Periteasca, A.A. Sireasa, A.A. Pardina, etc.)
and involves reconnecting them to the natural
flooding regime through dredging / excavation
works, based on established solutions
stemming from documented feasibility studies
and the results of the research carried out for
this purpose.
Improving the identified solutions for habitat restoration will improve both the quality and the quantity of creatures living in or near these restored natural habitats.
Restoration of ecological systems and natural habitats within the “Natura 2000” network for species of European conservation concern, by ecological
Whole area of DDBR
LIOP
Priority Axis #4
This intervention meets the need identified in
the Needs Assessment to support the goal of
preservation and restoration of the natural
environment and of the globally significant
biodiversity.
Reversing some of the obstacles to water
56
Type of intervention Location Source of
funds Justification
reconstruction works to improve the hydrological and hydrochemical regime in the natural lacustrine complexes of the DDBR, along with the development of an integrated performant monitoring system covering the whole area of the Danube Delta Biosphere Reserve (including cross-border areas)
circulation that have been put in place over the
past 50+ years in order to bring closer as much
as possible the current model of water flows
through DDBR to the natural pattern that
existed before the dam and drainage works
carried out in the last century is expected to
improve water quality and natural terrestrial
and aquatic habitats by lowering turbidity and
eutrophication. It mainly involves dredging /
excavation works to improve the drainage
system of ponds and primary, secondary, and
tertiary channels in the natural lacustrine
complexes: Gorgova-Uzlina, Sontea-Fortuna,
Matita-Merhei, and Rosu-Puiu, including
restoring the brackish regime of the Sinoie lake
of the Razim-Sinoie lacustrine complex and
restoring the water flow in I.C. Bratianu
agricultural polder.
Priority interventions are needed to restore
damaged ecosystems and habitats as a result of
poor water supply from the river, based on the
hydrological, sedimentological, and
hydrochemical mathematical model
development and implementation and to
restore affected populations of species.
Expanding aquatic habitats for fish and bird
species can be accomplished quite easily by
optimizing the hydrological regime of lakes and
related floodplains.
According to DDBRA, a decrease in the populations of these species was observed and therefore previous programmes for protection and conservation (insufficiently implemented due to the lack of funds) must be continued and intensified. The required physical investments are, for example, to ensure and improve conditions for reproduction in breeding facilities and to ensure adequate protection of the colonies of these species; indirect interventions, such as an integrated monitoring system for the entire area, are also needed.
Restoration of ecological systems and natural habitats within the “Natura 2000” network for species of European conservation concern, by degraded thicket sanitation works, implementation of measures for invasive species management,
Whole area of DDBR
LIOP
Priority Axis #4
This intervention meets the need identified in
the Needs Assessment to support the goal of
preservation and restoration of the natural
environment and of the globally significant
biodiversity.
This category includes interventions deemed
necessary to restore and/or improve the
quality of the natural habitats affected by:
- overgrowth of reeds that led to the
57
Type of intervention Location Source of
funds Justification
sanitation of natural ecosystem, management of abandoned domestic animals, implementation of measures to protect the affected species, including a monitoring station for migratory species and facilities to support populations of the flora and fauna species that are declining or affected (nesting platforms, artificial nests, treatment center for sick or injured animals, etc.)
degradation of thicket and the impairment of
the specific natural habitats;
- enlargement of the areas occupied by invasive
species (Amorphous fruticosa, Carasius
carasius, etc.);
- poor management with regard to domestic animals abandoned into the wild (horses, cattle), which affect the natural habitats, especially forests, and also with regard to supporting the populations of species that are declining or are affected by human intervention (Dalmatian pelican, the pygmy cormorant, European mink, sturgeons, etc.), specimens of injured fauna or fauna affected by various illnesses or disease outbreak.
Works for ensuring an effective protection and a good management in the DDBR by marking and signaling the limits of the functional areas of the DDBR; developing access routes for visiting DDBR with minimal impact on natural habitats
Whole area of DDBR
LIOP
Priority Axis #4
The first marking and signaling works in the
DDBR were made in the first part of the 90s.
Over time, these works proved insufficient and
ineffective. As a result, at present, an
integrated approach is needed for marking and
signaling activities in order to increase
management efficiency in the DDBR by
increasing the visibility of these works and by
covering all functional areas categories: strictly
protected areas, buffer zones, sports and
recreational fishing areas, camping and parking
areas, access and sightseeing routes, including
the establishment and development of
traditional non-mechanical craft trails
(fisherman rowing dinghy, canotca, etc.) or
ecologically powered ones (electric,
photovoltaic, wind, etc.).
Development and improvement of the existing infrastructure is also needed: extension of the DDBRA office, introduction of green technologies for electrical power supply, heating and domestic hot-water production, implementation of a monitoring and security system, especially in the strictly protected areas or other areas of particular interest (isolated colonies, protected habitats, etc.).
Reforestation of areas where the natural forest vegetation has disappeared or been degraded.
DDBR
Along the channels and in several former agricultural and fishery/fish
GOVERNMENT OF ROMANIA
This intervention meets the need identified in the Needs Assessment Report to support the goal of preservation and restoration of the natural environment and globally significant biodiversity.
Deforestation of natural forest vegetation on the branches of natural channels in the delta is noticed in around 200 km of such channels.
58
Type of intervention Location Source of
funds Justification
farming polders
The area to be afforested along the channels is approximately 400 ha; in polders for agriculture and fish farms, it is about 5,000 ha.
Development and implementation of measures to reduce solid waste in natural areas.
Whole area of DDBR
LIOP
Priority Axis #4
This intervention meets the need identified in the Needs Assessment Report to support the goal of preservation and restoration of the natural environment and globally significant biodiversity.
Natural ecosystems are affected by the amount of solid waste (especially plastic materials) carried downstream from the wider Danube basin (particularly during floods) or some generated locally by residents and tourists.
Required measures include establishment of collection points, equipment, and operating costs for collection and disposal (ideally including recycling of recoverable materials such as plastic bottles).
It also includes removal of debris and general ecological restoration of degraded and abandoned industrial land, particularly any such areas located near strictly protected areas.
Investments to support local action to reduce nitrate pollution of the waterways from agricultural and livestock rearing activities.
The whole DDBR territory
National Rural Development Program (NDRP)
Measure #6
6.1 & 6.3 (by individual actions)
Measure 19 LEADR (local actions)
This intervention meets the need identified in the Needs Assessment Report, to support the goal of preservation and restoration of the natural environment and globally significant biodiversity.
Such physical investments and measures relate to Romania's obligations under the EU Nitrates Directive, and are made more urgent by the recent decision to declare Romania's entire territory as potentially vulnerable to nitrates pollution. Most communes outside the core Delta have substantial populations of livestock, mainly at the household level, with no measures in place to prevent manure from entering surface waters. The first step would be an inventory of the existing livestock and definition and assessment of other criteria to identify the areas where investment is most needed (e.g. due to a high number of contaminated wells; most individual wells have polluted water, with high concentration of nitrates due to improper manure management). For the core Delta, other more practical solutions for manure management could be considered, adapted to the respective
59
Type of intervention Location Source of
funds Justification
conditions.
Developing and implementing a modern/efficient monitoring system and predictive a model for sedimentation dynamics in the Danube Delta
The whole DDBR territory
Large Infrastructure OP, PA # 5; Ministry of Environment
In our expert opinion, this intervention is strictly needed in order to improve the capacity of DDBRA and associated institutions in executing proper actions for de-silting the channels, dragging and managing sediment deposition. DDBR is a complex hydrological system combining flow in channels and over floodplains. The water carries a heavy sediment load collected from the Danube River basin upstream. These sediments contribute important nutrients to the delta ecosystem, but can also cause undesired physical and ecological changes, such as blocking of access channels and eutrophication in areas with restricted water flow. Some of the problems related to sediment deposition are due to artificial channels that were built perpendicular to the direction of natural water flows. There is a strong demand among DDBR residents and users for dredging of channels and lakes to maintain access routes and fishing areas. This is also included in the DDBRA's annual work plan. However, any changes in the speed or direction of water flow and sediment deposition in one part of the Delta can have impacts everywhere downstream of that site. Therefore, it is essential for DDBRA to have the best possible information and tools to predict impacts before large scale dredging, placement or removal of dykes, or any other activities that would alter water flow.
Technical assistance for an in-depth institutional analysis (functional review) of DDBRA aiming to improve management performance and legislative framework governing DDBR area and to ensure the direct access of population to services and natural resources
The whole DDBR territory
OP TA
This intervention meets the need identified in the Needs Assessment, to support the goal of direct protection and preservation of the natural habitats and DDBRA fulfilling its main functions.
The institutional framework for management of the DDBR is complex and sometimes ambiguous, with a number of different national and local institutions with diverse and sometimes overlapping responsibilities and legal mandates, some at parallel levels within
the government hierarchy and some
subordinated to others.
Development of an International Center of Advanced Studies Danube - Danube Delta - Black Sea for biodiversity
Whole area of DDBR
LIOP
Priority Axis #4
This intervention meets the need identified in the Needs Assessment, to support the goal of direct protection and preservation of the natural habitats.
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Type of intervention Location Source of
funds Justification
preservation
This center will carry out research on the key processes influencing river - delta - sea systems and develop sound solutions for the sustainable management of them, using a multi-disciplinary integrative approach, combining fundamental and applied research. This is aligned with the (2013) EU Green Strategy developed by the EC to conserve and enhance natural capital and to achieve the Europe 2020 objectives. It is also consistent with Europe Horizon 2020 key priority 3, Societal Challenges - priorities and actions for Danube - Danube Delta - Black Sea biodiversity preservation. The center, which is part of the European Strategy Forum on Research Infra-structures (ESFRI) Program, will facilitate partnership among national and international research organizations (in Romania, Germany, Hungary, etc.), including the use of their existing facilities. The concept calls for a "hub" facility in the DDBR. Development of the infrastructure is envisaged in three phases, with EU funds for Phase 1 and subsequent phases with other international support. A site on the St. Gheorghe arm, at Murighiol, has been selected for its easy access to the delta, and the coast. Murighiol Local Council has allocated three hectares of land for this Hub.
For the 2030 horizon, the following activities are proposed:
- The rehabilitation of the „Natura 2000” eco-systems and natural habitats and the
development of an integrated monitoring system, which will cover the entire Danube
Delta.
- The reforestation of areas where natural vegetation has dissaperead or is degraded.
- Measures to prevent the dumping of solid wastes in nature protection areas.
- The development of an International Advanced Research Center for the Danube –
Danube Delta – Black Sea area, with the aim of preserving biodiversity.
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Energy Efficiency
Action for energy efficiency is complementary to most other interventions and need to be a guiding
principle for local development. In terms of public lighting, for example, the use of energy efficient
technologies can reduce public costs considerably and make investments more sustainable.
However, these types of investments are highly specific and localized. Therefore a Tool for Rapid
Assessment of City Energy (TRACE) study was performed in order to identify the energy efficiency of
Tulcea city. The timeline did not allow for the same to be done throughout the study area.
In consultation with local authorities in Tulcea and based on sector analyses performed in the six
public utility areas, the sectors with the highest energy savings potential where the local
government has a significant degree of control are: district heating, municipal buildings, potable
water, public transportation, and solid waste. Changes in practices and equipment used could help
the city significantly increase the energy efficiency of public utilities, while also delivering better
services and improving the quality of life for locals, particularly through using an efficient co-
generation plant. Creating local benchmarks while retrofitting public buildings will also play an
important role for the efforts of local administrations to control and manage the performance of
implemented measures.
The recommended approach is to create local energy efficiency benchmarks and expertise
employing the Local Energy Efficiency Recommendations (LEER) before physical investments are
made. It is also essential that this is backed by a transparent process of learning and dialogue
between public authorities and the public sector, to also seize economic opportunities. For example,
one of the area's comparative advantage is the large amount of reed that is now under-used and
could be employed as isolating construction material or as biomass.
The area has large construction and financial sectors that could enhance their expertise to create
near-zero energy buildings and perhaps even act as energy services companies. There is a legal
requirement to retrofit public buildings to a near zero-energy standard that will require more than
thermal insulation, but also a change in practices and types of energy used. On the other hand,
projects meant to aid private residence owners retrofit their homes need to become more limber
and carry less administrative burden, particularly since state owned buildings represent just 1.17% of
the buildings surface area in the study area. The need for retrofitting and the types of necessary
measures will need to be evaluated at the local level, which is why, complementary to any national
initiatives, programs to help finance energy efficiency retrofits and encourage renewable energy use
for the residential sector will also need to be accompanied by local guidelines and market studies
and on the spot evaluations to make sure that consumers make informed choices. This will require
an increase in the capacity of local administrations as well as the private sector in order to
Sector-specific Objectives
Increasing the energy efficiency of the study area in economic,
residential and public buildings and public service provision fields
Increasing the use of renewable energy sources within the study area
Improving local expertise, information availability and energy efficiency
awareness
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strengthen to ensure that both will be able to offer the necessary support. Many residents and
private businesses have already made efforts to retrofit their homes, and these types of efforts need
to be encouraged through public policies - lower local taxes for example for owners who retrofit
their homes are already in place in much of the study area.
The focus of efforts in the energy efficiency sector will be to help the private and public sectors
move towards the European standards of energy efficiency, while helping the local economy grow
along low carbon sustainable pathways.
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Table 6 presents a selection of priority projects and interventions in the area of energy efficiency.
The investments proposed in the energy efficiency of buildings, both public and private, have had
equivalents in the previous financial period, but had lacked efficient implementation mechanisms
and results monitoring. These investments therefore require a solid knowledge base and level of
expertise as well as market studies in order to ensure cost efficiency as well as a broader
understanding of the benefits of energy efficiency improvements. The investment in energy efficient
public lighting will also lead to a decrease in public cost and an increase in public safety and quality
of life. In addition, the construction sector is significant in the study area and these investments will
ensure that local companied will be stimulated to grow and build their energy efficiency expertise.
An energy services company approach, where emissions reductions are compensated and taking
advantage of scale economies, is recommended.
The increased investments in renewable energy use may allow for a reduction in costs. It may also
lead to a diversification of the types of renewable energy used since wind farms are now the only
sources used extensively, as discussed in the Diagnostic Report. Diversification will stimulate the
local business and perhaps lead to innovation in the use of local resources, such as reed as biomass.
All energy efficiency investments proposed here have multiple benefits: reducing public and
household energy costs, as well as carbon emissions while stimulating the local economy and
moving it towards a more proficient, knowledge based and green version of itself. In that sense it
moves on the pathway towards the Europe 2020 goals of a 20% increase in the use of renewable
energy and a 20% increase in energy efficiency. At the same time these initiatives concur within the
overall goals of the strategy to protect the environment as well as the people of the Danube Delta.
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Table 6: Energy Efficiency - Priority Types of Intervention/Justification29
For the 2030 horizon, the following activities are proposed:
- The extension and improvement of the public lighting system
- Promoting energy efficiency measures among households
- Promoting the use of renewable energy
29
Subsequent interventions are suggested in Needs Assessment Report, in TRACE recommendations and in the table Energy Efficiency Needs Assessment. 30
Implementing nearly Zero-energy Buildings (nZeB) in Romania – towards a definition and roadmap, 2012, Bogdan Atanasiu, BPIEș http://bpie.eu/documents/BPIE/publications/Romania_nZEB/EN/EN_full_report.pdf
Type of intervention Location Source of funds Justification
Improving the energy efficiency of public buildings (schools, hospitals, administrative buildings, etc.; list of buildings to be developed in due course)
The whole DDBR territory
ROP, Thematic objective no. 4: Supporting transition towards a low carbon economy, Priority axis 3.1.
The energy efficiency directive requires that 3% of public buildings with over 500m
2 be
rehabilitated yearly, and the surface limit decrease to 250m
2
until 2015.
Extending and improving the energy efficiency of public lighting
The whole DDBR territory
ROP, Thematic objective no. 4: Supporting transition towards a low carbon economy,)
Support for improving energy efficiency of households
The whole DDBR territory
ROP, Thematic objective no. 4: Supporting transition towards a low carbon economy,
In order to reach its goals, Romania must reduce emissions by 3 kg CO
2/ (m
2*year)
30.
In the study area a well-planned energy efficiency investment program can help stimulate the local economy and reduce the energy costs of households.
Promoting the use of renewable energy sources
The whole DDBR territory
Large Infrastructure OP, Priority axis 6 ROP, Thematic Objective no. 4: Promoting renewable energy use
This measure is aimed the Europe 2020 goals and at diversifying the local economy.
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Climate Change
Climate change (CC) has both global and local impacts. It may very likely induce higher risks of
natural disasters such as floods, droughts, and wild fires which will threaten local communities and
the economy of the Study Area. The EU is firmly committed to tackling climate change and requires
that at least 20 percent of the European funds in 2014-2020 be spent on climate change-related
actions, both mitigation and adaptation to climate change. The actions addressing climate change
should be specifically included and integrated in the proposed ITI activities for the Danube Delta.
Pursuing a low carbon and climate resilient growth is also in the best interest of local communities in
the Study Area. In the long run, the Study Area will aim to become a low carbon and climate resilient
society. It should try to be one of the first few regions in the nation to meet the national targets of
GHG emission and energy consumption reduction, and use of renewable energy, which is part of the
national commitment to the Europe 2020 Strategy.
Climate change is cross-cutting and the majority of mitigation and adaptation measures will be
sector-oriented. For example, GHG mitigation measures are mostly from the energy, transport and
industrial sectors, such as the efforts to promote energy efficiency, as specified in the Local Energy
Efficiency Recommendations (LEER), the use of renewable energy in the public and private sector,
the investments in developing waterway transport and other low carbon transport modes, and
efficiency improvement in industrial entities and public utilities. Reforestation, in turn, is proposed in
the biodiversity sector. CC adaptation measures are also mainly sector-based by nature, and need to
be well integrated into sector-specific activities, such as flood protection in both urban and rural
areas, and adopting climate resilient agricultural and fishery practices.
Despite various sector-specific measures, there is a general need to strengthen the local capacity of
planning, financing, and implementation and raise public awareness in the Study Area. First of all,
the Local Climate Change Recommendations (LCCR) needs to be formulated based on a solid
scientific basis and studies of the local situation. A Climate Change Partnership (CCP) will be
established, which will provide support through: (1) a community micro-loans program for climate
adaptation that will target low-income families. (2) micro grant or loan mechanism to help SMEs to
acquire low carbon technologies; and (3) facilitating partnerships between research institutions and
private companies. A portion of the ITI funds needs to be earmarked to be part of the CCP, which
will be applied in both urban and rural settings and will be complementary and integrated into the
relevant sector-specific initiatives and investments, by recommending certain standards or practices.
However, the CCP is not standalone, it is meant as a focusing and coordinating tool, which upholds
Sector-specific objectives
Developing a climate friendly and resilient area by integrating climate
change into local public policies and planning
Promoting development of a low carbon economy through targeted
adaptation measures and by reducing GHG emissions
Developing partnerships and financing instruments in the field of climate
change
Raising the awareness of the population and businesses on climate change
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national climate change policies as well as overall local priorities. Investments recommended in the
agriculture or tourism sections for SMEs, for example, would potentially be part of the CCP if
appropriate. Indeed, all CCP investments serve the overall goals described in this strategy with the
added benefit of providing climate change mitigation or improving adaptation capacity.
Education and communications efforts will also be needed and in synergy with broad educational
and training efforts in order to raise the awareness, and ensure that climate change and low carbon
technologies become integrated into local public and private sector planning.
To effectively coordinate and implement climate change-related activities, a unit with a clear
mandate to address climate change issues, with a small number of dedicated and knowledgeable
staff, and capable of working cross-sector should be in place for coordinating with the public and
private sector and guiding them in their efforts of addressing climate change issues. The small unit
will, when needed, work with experts in developing the guidelines and possibly work as part of the
ITI administration ensuring that CC investments are well targeted, coordinated, administrated,
monitored and evaluated, and that practitioners and the general public are well informed on the
impacts and potential benefits of CC. Considering that the methodologies for assessing CC impact
will be part of a significant part of investments and that expertise is quite limited in the study area,
this unit is essential, even if it contains only one or two employees.
Many of the investments that will help make the study area more resilient to climate change and
help reduce its emissions, are sector-specific, and therefore coordinating and monitoring
mechanisms will be required in order to observe progress. The current awareness of threats and
potentials of climate change is low in the public as well as the private sector. There is lack of actions
addressing climate change concerns. The funding proposals take a targeted and pragmatic approach
to create local knowledge and to spark new green initiatives and partnerships within the study area.
The proposed investment are complementary to sector-specific investments and aim to ensure that
climate change mitigation and adaptation actions are well monitored, are based on a coherent cross-
sectoral scientific data, and promote well informed policy making and sustainable low carbon
growth. The climate change unit will ensure that climate actions are developed with and for local
authorities, communities and businesses. The multiple types of instruments to be employed ensure
that the benefits of climate change related investments are shared and that innovation will be
enhanced. The multiple sources of funding available for the subject can combine to create a
concerted effort to involve the business community in low carbon innovation and adoption of new
technologies, and also ensure that low income families can lower their energy bills or reduce their
exposure to climate change risk.
Table 7: Climate Change: Types of Priorities and Justification
Type of intervention Location Source of funds Justification Create a CC partnership platform, including a community-driven climate adaptation fund targeted at low income families, a micro grant or loan mechanism to support
The whole DDBR territory
LIOP, PA 7: Promoting clean energy and energy efficiency in order to support a low-carbon economy;
ROP: PA 2 Improving small
Although designed to fund needed mitigation and adaptation measures, this initiative has many side benefits for the socio-economic development of the study area (construction, commerce,
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SMEs, and a partnership facility to promote private and public collaboration for innovative climate actions.
and medium enterprises’ competitiveness (for
increased productivity)
ROP: PA 5 Improving urban environment and the sustainable conservation, protection and capitalization of the cultural heritage (for local authorities
only)
ROP: PA 7: Diversifying local economies through the sustainable development of tourism
COP, PA 1: Research, technological development and innovation (RDI) in support of economic competitiveness and business development
industry etc.). Additional funding sources could be found (such as from EBRD).
Create or designate a unit with a clear mandate to address climate change issues, with a small number of dedicated and knowledgeable staff, and capable of working cross-sector.
The whole DDBR
territory
ACOP, PA 1
Effective public administration and legal system
The unit can be part of the ITI administration. It is essential in order to ensure that CC investments are well targeted and monitored, and that applicants and the public are well informed. It will coordinate with the public and private sector and guide them to address climate change. The small unit will work with experts in developing the guidelines and work as part of the ITI administration ensuring that CC investments are well targeted, coordinated, administrated, monitored and evaluated, and that practitioners and the general public are well informed on the impacts and potential benefits of CC.
Develop clear and easy to use local guidelines for climate change and energy efficiency programs.
The whole DDBR
territory
LIOP, PA 5: Promoting the adaptation to climate changes, risk prevention and management;
HCOP, PA 6: Education and Skills
The guidelines will provide a basis for public and private initiatives and for the funding of the CC partnership platform. It will require that personnel be trained to employ and use them, both within local administrations and the private sector.
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The following intervention should be considered for the 2030 horizon: Create a CC partnership
platform, including a community-driven climate adaptation fund targeted at low income families, a
micro grant or loan mechanism to support SMEs, and a partnership facility to promote private and
public collaboration for innovative climate actions.
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Disaster Risk Management (DRM)
The development policy, programming and investments in the Study Area should be based on risk
assessments. The measures in this field aim to: (1) promote multi-stakeholder national and local
disaster risk governance systems and plans, supported by effective regulatory frameworks and
coherent institutional capacity-building efforts; and (2) integrate disaster preparedness for relief and
recovery with development programs that reduce disaster risk and build resilience. Interventions will
include: (a) "soft investment" and technical assistance, particularly for: (i) risk assessment for floods,
earthquakes, coastal erosion and forest fire; (ii) elaboration of an Integrated Disaster Management
Information System (IDMIS) for the Study Area; and (iii) disaster response plans including resource
allocation, based on disaster scenarios using the IDMIS; and (b) investments in infrastructure,
including (i) provision of special machinery and equipment for disaster intervention; (ii) construction
and rehabilitation of specialized centers for management of emergency situations; and (iii)
infrastructure to prevent and mitigate the effects of natural disasters due to earthquakes and floods.
Figure 15: Current floods situation
Sector-specific objectives
Reducing the vulnerability to all risks, while improving the quality of emergency
services, based on national and county risk assessment, and develop and
maintain an adequate response capacity;
Assessing the main risks, elaborating risk maps for earthquakes and floods, and
implementing projects to reduce these risks
Elaborating a County Integrated Information System for the Management of
Emergency Situations as part of the National Information System for Disaster
Management
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Table 8: DRM - Priority Types of Intervention and Justification
Type of intervention Location Source of
funds Justification
Provision of special machinery and equipment for interventions by IES and SMURD in disaster situations
IES Delta Tulcea
LIOP Priority Axis #5
The current level of management for emergency situations at different types of disasters is inadequate in relation to the risks identified for each locality. Performance criteria established by law require adoption of measures to improve the disaster response capacity of the entities involved. The main weaknesses of the intervention system relate to a lack of cars/vehicles and inadequacy or lack of multidisciplinary training centers for emergency situations. A large part of IES Delta's fleet of vehicles is outdated, about 75% being more than 10 years old, and almost 60% more than 20 years old. Investments 2007-2013 cover only 30% of the needs. Development of a training system for professionals involved in emergency situations is another critical need for the study area.
Modernization, rehabilitation and construction of Inspectorate for Emergency Situations (IES) infrastructure facilities in TULCEA
IES Delta Tulcea Măcin Crișan Babadag
Large Infrastructure OP Priority Axis #5
Works for the prevention, protection and mitigation of floods.
The whole DDBR territory
LIOP Priority Axis #5
Flood risk management is provided mainly by the Ministry of Environment, Water and Forests (MEWF), the central National Administration "Romanian Waters" (NARW), and the National Institute of Hydrology and Water Management (INHGA). According to national legislation, assessment of flood risk (PFRA) is the responsibility of MEWF and NARW (the Water Basin Administration(ABA)'s and INHG) and is done in three steps: (1) Preliminary Flood Risk Assessment (PFRA) (March 2012); (2) Preparation of hazard maps and flood risk (March 2014); and (3) Planning flood risk management (March 2016) The mentioned localities for flood protection works were identified based on these activities.
The following intervention should be considered for the 2030 horizon: works for the prevention,
protection and mitigation of floods.
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Pollution emergency
As an area with precious environmental and biodiversity values, the Danube Delta should implement
high environmental management standards and be well protected from any pollution disasters such
as chemical spills by ships or point sources inside the Delta or upstream. The situation analysis shows
that there is much room for improvement in the coordination and collaboration among government
agencies responsible for pollution emergency response and prevention and the accessibility to some
parts of the core Delta, especially given the trend of growing economic activities and waterway
traffic as seen in the traffic study commissioned by the World Bank for the Study area. Although the
County Emergency Committees is the main local coordinating body, the agency that takes lead on
the ground depends on the location and scale of pollution incidents occur. Inland waterways are
sometimes difficult to monitor and reach, particularly off the main channels. The responsible
agencies will need to continue improving their level of preparedness considering the growing risks of
water pollution disasters inside the Delta. The first response units do not own enough properly
equipped vessels for handling water pollution incidents in some parts of the Core Delta, and the
response times to disasters inside the Delta are estimated to be three to eight hours, which is
deemed inadequate.
As a result, more efforts will be needed to ensure the Study Area free of pollution disasters. The
focus of actions will be on improving response times and inter-institutional coordination and
monitoring when pollution incidents occur. An inter-agency Pollution Emergency Response Team
needs to be created for improving the coordination among various agencies. Coherent and
comprehensive pollution emergency response and prevention plans, covering both water and land
as well as both mobile and fixed sources of pollution, need to be prepared. Local authorities have
estimated that at least two additional properly equipped small vessels and equipment will be
needed to improve pollution emergency response times to an adequate level in the Core Delta.
Technical support is also required to improve pollutant inventory, monitoring, and inter-agency
data-sharing and coordination as well as evaluation. Data-sharing in particular will require ICT
support so as to ensure that pollution monitoring of potential sources by different institutions is
centralized in an inter-agency and cross-sector database and easily accessible in case of pollution
disasters. This will also require improved data-sharing mechanisms between institutions. Knowledge
of international best practices in pollution emergency response and awareness of pollution risks by
relevant government agencies and business entities will be further improved through skills training
and awareness raising programs.
Sector-specific objectives
Developing an advanced information management system for hazardous wastes
which may cause a pollution spill and represents a threat to the DD
Reducing pollution risks and the response time by developing a prevention plan,
providing adequate equipment and training of human resources
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Table 9: Pollution emergency: - Types of Priorities and Justification
Type of intervention Location Source of funds Justification
Purchase of equipment to enable the first response team to quickly access pollution incident sites in the Core Delta
The whole DDBR territory
Large Infrastructure OP PA 5: Promoting the adaptation to climate changes, risk prevention and management of risks
Requested according to commission led by RNA and necessary to reduce first response time and increase capacity of a first response team to contain pollution incidents.
Create and maintain an inter-institutional environmental liability data-base for data sharing and better coordination across agencies
The whole DDBR territory
Administrative Capacity OP
PA 1: Effective public administration and legal system
Necessary to ensure that a comprehensive view of pollution emergency risk exists at the local level. The tool can also be used to increase general inter-institutional coordination, help increase public awareness, and reduce public costs.
Drafting complete coherent and comprehensive pollution emergency response and prevention plans, covering both water and land, and both mobile and fixed sources of pollution
The whole DDBR territory Administrative Capacity OP
PA 1: Effective public administration and legal system
The plan will increase the consistency of emergency response policies, and look for ways to decrease all pollution emergency risk. The Danube is part of the TEN-T network. Increased economic activity is expected in the study area, justifying thus increased vigilance.
Create an inter-institutional Pollution Emergency Response Team
The whole DDBR territory
Administrative Capacity OP
PA 1: Effective public administration and legal system
The inter-institutional team will administer and maintain the database and the plan, take part in interventions, and coordinate local pollution emergency prevention, under the authority of the Local Emergency Committee.
These investment proposals are meant to enhance the capability of the local government agencies,
especially the first response teams, to quickly and effective respond to pollution incidents, i.e.
develop an effective pollution emergency response and prevention mechanism in the study area.
Investments in boats would decrease reliance on third parties and help reduce response times,
particularly in the core Delta, which is the most important ecological asset and the most difficult to
reach by response teams. The creation of an inter-institutional pollution emergency team is central
to the functioning of the mechanism, since it will ensure consistency and continuity. The members
would train together in the proposed emergency center, lead awareness campaigns, and form a
cohesive and effective unit. The formation of the team will necessitate updating of inter-institutional
co-operation procedures, with an increase in data-sharing and internal procedural alignment. The
proposed database would ensure that all forms of pollution emergency risks are monitored across
relevant agencies. It would also contain best practices and information about associated public risks
and costs.
The following intervention should be considered for the 2030 horizon: maintain an inter-institutional
environmental liability data-base for data sharing and better coordination across agencies.
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Pillar II: Improving the Economy
The interventions presented under this pillar all aim at enhancing the economic prospects of
tourism, fisheries and agriculture respectively. The improvement of infrastructure services (Pillar 4)
is expected to remove some of the obstacles to the development of tourism, but this is not enough.
Specific tourism infrastructure – from paths to accommodation units and guided tours – needs to be
developed to attract tourists during the different seasons of the year, and the marketing of the
area's environmental and cultural attractions needs to be more aggressively pursued. An initiative
advocated in the assessment of the fisheries sector – supporting recreational fishing – will be
implemented along with developing attractive tourism activities.
Tourism
On the basis of the diagnostic phase of the project, the Danube Delta region holds significant
potential for the development of sustainable nature- and culture-based tourism. Tourism in the
region remains underdeveloped, providing opportunities for growth. Given the sensitiveness of the
natural and cultural resources – the main assets for tourism – the development of tourism must be
based on careful planning and on understanding the gains and losses related to tourism activities. A
significant opportunity is that the type of tourism that fits the character of the region corresponds to
the type of tourism that is growing and will make progresses in the future31. Tourism based on
experiencing nature and exploring local culture is also associated with longer length of stay, higher
average spending and more responsible behavior towards local communities and biodiversity32.
According to a recent study of the European Commission and the Council of Europe on the impact of
cultural tourism on small and medium enterprises, cultural tourism holds significant potential for
stimulating innovation and strengthened competitiveness of local businesses and entrepreneurs33.
Cultural tourism is essential to ensure that the natural and cultural offers are coagulated in the
Danube Delta economy and benefit the communities and businesses in the area.
The diagnostic findings are the defined vision for the Danube Delta region, serving as the basis for
three development objectives for the tourism sector.
31
In a recent summary of trends and statistics, the Center for Responsible Travel (CREST) highlights that there is a sustained and proven interest among the travelers around the world for the products and services that protect the environment and respect local cultures. 32
2013 Industry Snapshot, Adventure & Trade Association 33
The European Commission and the Council of Europe (2012): European Cultural Routes impact on SMEs innovation and competitiveness
Sector-specific objectives
Developing and promoting the Danube Delta as an integrated tourism destination with
a rich portfolio of sustainable tourism products and services by capitalizing the natural
and cultural heritage
Establishing a local destination management mechanism based on the active
participation and ownership of local stakeholders
Encouraging local population to run small tourism businesses that meet quality and
sustainability standards and that are economically viable
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These objectives led to the identification of a list of needs, which were organized around seven
intervention areas:
Access and Transport relate to the overall need to improve the connections between the
Danube Delta and the rest of Romania, as well as to the improvement of mobility within the
region.
Visitor Infrastructure and Information Services relate to the importance of light physical
infrastructure supporting the development of activities such as hiking, biking, horse-back
riding, and water sports as well as the exploration of the rich cultural heritage of the region.
Information services relate to the need to have basic information for visitors as well as
interpretation programs34 that tell the stories of the region and reveal its authentic culture
and characteristics. Visitor infrastructure and information programs are important for
environmental protection and for the protection of cultural sites as well because they serve
as tools for the management of visitor flows and patterns. They are also an important
element for the development of an attractive portfolio of cultural attractions, which is
essential for the Danube Delta region.
The interventions related to accommodation are associated with improving the overall
quality of existing accommodation facilities rather than investing in new ones. The
occupancy levels in the region are extremely low and this leads to poor profitability.
Investments in new accommodations are necessary only if they are implemented for the
development of low-impact facilities, such as camping areas, which will diversify the existing
offers rather than simply increase capacity.
Health, Safety and Security relate to the importance of meeting international
standards/norms in these service sectors. This is important for any destination that aims to
compete on international markets.
Workforce Development needs are grouped in two major groups. First, there is an overall
need to improve the capacity and skills of the employees in tourism companies to enable
them to deliver higher quality services. Second, there is a need to improve the management
and business operation, in order to enable company owners and entrepreneurs to run their
business more effectively.
Economic connections address the potential for tourism to generate increased socio-
economic benefits by connecting with other sectors. Tourism needs to be better grounded in
the local economy and linked in a profitable manner to agriculture, fisheries, transport and
other sectors, particularly through SMEs. There are specific economic opportunities which
hold great potential for job creation and for enhancing the quality of the tourist attractions
in the DD Region. These include local arts and culture, traditional cuisine and traditional
crafts.
Destination management and market access are associated with managing the Danube Delta
region as an integrated tourism destination. Due to the complexity of the sector and the
34
Interpretation is a way of making known the tourist attractions and activities. It is based on sharing knowledge that is new to the tourists (experience through learning) in a way that would attract them emotionally. Interpretation involves producing information materials, installing signs, providing information services and most importantly, guide services. Efficient interpretation involves the planning and design of the interpretation programs and the special training of the guides and other tourism service providers.
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involvement of multiple stakeholders, there is a need to develop a local destination
management mechanism that will engage local stakeholders in a participatory manner. A
Destination Management Organization (DMO) will be responsible for the management of
the Danube Delta brand and its effective positioning and marketing on international
markets.
Addressing these needs will take time and will require a carefully phased set of interventions.
Tourism is highly dependent on multiple socio-economic sectors and involves a complex network of
stakeholders. Taking this into account, the efforts for investment and planned development
designed to promote tourism in the DD region should gradually build the local physical and human
capacity, as well as the economic connections networks and the connections between various
stakeholders. The success of the interventions highlighted in the tourism sections of this document
depend on the schedule and success of the interventions in other sectors, such as transport (for
improved access and accessibility), education (for workforce development and skill training),
healthcare (for improved safety and social services), agriculture and fisheries (for improved
economic connections).
These complexities justify the importance of a local destination management mechanism (a local
DMO) that has been proposed. One of the essential roles of a DMO is to coordinate the relationship
with other public, private and non-governmental entities that operate in relevant socio-economic
domains. The institutional design and functional scope of the DD DMO should consider the
importance of this coordination function.
An important aspect of the development of the DD as a competitive tourism destination is the strong
advantage associated with the distinctive character and culture of the region. Nature is clearly the
asset that will be at the core of the DD product and attraction portfolio. At the same time, the
distinct local culture represents another particularity that can be a key ingredient for the positioning
of the DD destination on international markets. It is recommended that the priority intervention for
the development of the Danube Delta product and portfolio focus on developing the offers around
the rich variety of tangible cultural assets, such as cultural, historical and religious sites, but also
around the intangible cultural heritage: local arts and crafts (including music, arts, souvenirs, etc.)
around the traditional economic activities (reed, thatched roofs, etc.), local cuisine (not only
restaurant dishes, but also cooking demonstrations, cooking classes, etc.) and traditions and
celebrations, etc. The visitor infrastructure, the interpretation and product development should
contribute to the improvement of the attraction capacity of the area in the form of experiences in
cultural and religious places (museums, churches, monasteries and important historical places and
sites, etc.).
Another important aspect of this strategic approach specific to tourism development in the DD is the
focus on grounding it in the local economy. This is possible only if joint actions create a favorable
environment and support the mechanisms for local micro, small and medium enterprises, and
especially social enterprises35 to help build a green local economy. An analysis of tourism enterprises
35
Social enterprises are commercial and market-driven enterprises which maximize improvements in human and environmental well-being, rather than focusing exclusively on monetary profits. Their business models are based on selling goods and/or services along which they solve social or environmental problems, and improve the overall quality of life in their community.
76
in the DD region identified a number of opportunities for people with entrepreneurial initiatives and
who wish to develop the existing local businesses.
Figure 16: The current tourism situation
Table 10.Tourism: Types of Priorities and Justification
Type of Intervention
Location Source of funds Justification
The establishment and development of tourism infrastructure
The entire DDBR territory
Regional OP Axis 7: Diversifying local economies through the sustainable development of tourism National Rural Development Programme: Priority 6: Promoting social inclusion, poverty
The development and setting up of visitor infrastructure in the Danube Delta is extremely important in the development of sustainable nature- and culture-based tourism in the area. First of all, travelers interested in nature-based experiences seek to engage in active exploration of nature through activities such as hiking, biking, horseback riding, water sports, etc. These activities require paths and supporting infrastructure. Second, the routes and trails that enable easy movement throughout the DD region will allow the tourists to enjoy the different parts of the destination and will encourage visitors to stay longer and visit more places. Third, non-
77
Type of Intervention
Location Source of funds Justification
reduction and economic development in rural areas Large Infrastructure OP: Priority Axis 2: Developing a quality, sustainable and efficient multimodal transport system
motorized movement is associated with low impact on biodiversity and ecosystems. Fourth, visitor infrastructure enables access to cultural heritage sites and facilitates the meaningful experiencing of local culture. Visitor infrastructure is an essential component of developing the DD's portfolio of attractions and products. For example, the signage, the benches, the walking paths, etc. can transform a small church that does not attract visitors into a point of interest for tourists. Also, the signs, the benches and the walking paths can transform an empty meadow into an important stopover for nature lovers.
The institutionalization of a Danube Delta Destination Management Organization (DMO)
The Headquarters of DMO can be in Tulcea but it can have offices throughout the destination.
Administrative Capacity OP Priority Axis 1: Effective public administration and legal system Priority Axis 2: Accessible and transparent public administration and legal system
The institutionalization of a DD Destination Management Organization (DMO) is necessary to coordinate the management of the region as a travel destination. This project would involve the development of local leadership and management capacity in tourism policy development, strategic tourism planning and tourism destination management, including the management of the local DD destination brand. One of the important roles of the DMO is also to plan and implement the integrated product development and marketing of the destination. This means that the DD DMO will take lead in the development of the region's portfolio of attractions and region-specific products to ensure that it offers numerous opportunities for exploring and enjoyment in the DD and for becoming familiar with the specific culture and traditions of the region. The DMO is also the owner and manager of the DD brand.
The design and implementation of a destination-wide program for product and
The entire DDBR territory
Regional OP Axis 7: Diversifying local economies through the
The character of the DD region as a travel destination will depend on the richness and distinctiveness of the products and attractions it offers. A destination-wide program for nature -
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Type of Intervention
Location Source of funds Justification
attraction capacity development
sustainable development of tourism National Rural Development Program: Priority 6: Promoting social inclusion, poverty reduction and economic development in rural areas
and culture - based product and attraction development should include a detailed assessment of the existing tourist attractions and locations, which can be transformed into new tourist offers. The region's natural and cultural assets offer an opportunity for the development of a multitude of outdoor activities and experiences, as well as enabling people to enjoy the features of the local culture and traditions. The product and attraction capacity development should place special focus on the development of tourist offers based on local events, on traditional cuisine, on the cultural heritage and on historical sites and places. Special focus should be placed on highlighting the tangible cultural heritage assets in the region (cultural, historic and religious sites) as well as the intangible cultural heritage of the region. While the development of tourism products and attractions is a predominantly private-sector activity, the public sector and the local DMO have an essential role in setting the framework and instilling the right incentives for development that fit an overall destination management strategy and character.
The implementation of a support mechanism for innovative and sustainable nature - and culture-based tourism by creating MSME's and social tourism enterprises36
The entire DDBR territory
Human Capital OP Priority Axis 1: “Jobs for Youth” Priority Axis 2: Improving the situation of young people with a NEET status Priority Axis 3: Jobs for all Priority Axis 4: Social inclusion and combating poverty
To maximize the economic potential of sustainable tourism development in the DD region, it needs to be grounded in the local economy. This is possible only if there are relevant and sufficient support systems that facilitate the establishment and growth of innovative and sustainable micro, small and medium enterprises that offer nature- and culture-based tourism offers in order to build a green local economy. The DD region needs a proactive effort to promote and encourage entrepreneurship in natural and cultural
36
Social enterprises are commercial and market-driven enterprises which maximize improvements in human and environmental well-being, rather than focusing exclusively on monetary profits. Their business models are based on selling goods and/or services along which they solve social or environmental problems, and improve the overall quality of life in their community.
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Type of Intervention
Location Source of funds Justification
Priority Axis 5: Education and
skills ROP – Axis 2 Improving small and medium enterprises’ competitiveness
tourism areas and the development of local enterprises, including social enterprises. In addition to the basic tourism services (such as lodging and food services) there is significant potential for local entrepreneurs and other businesses to develop due to the DD areas promoting the distinct local culture: traditional food, arts and crafts, guiding and interpreting services. An important component of this potential effort to encourage the development of local MSMEs is the improved local business environment, as well as the availability of flexible financing options for the local entrepreneurs and businesses, micro, small and medium-sized enterprises.
The implementation of a comprehensive program for the beautification of settlements and the revitalization of urban centers
Tulcea, Sulina, Crișan, Sf. Gheorghe, Chilia Veche and others
Regional OP Axis 5: Improving urban environment and the sustainable conservation, protection and capitalization of the cultural heritage The National Rural Development Program (NRDP) Measure #7: Basic services and modernization rural areas
Making towns and villages more welcoming and beautiful throughout the Danube Delta region will contribute to an increase in the competitiveness of the Danube Delta tourism offers and will create a favorable environment for local entrepreneurs to offer tourism services.
The following interventions should be considered for the 2030 horizon:
- The establishment and development of tourism infrastructure - The implementation of a support mechanism for innovative and sustainable nature -
and culture-based tourism by creating MSME's and social tourism enterprises - The implementation of a comprehensive program for the beautification of settlements
and the revitalization of urban centers
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Fishery and aquaculture
The productivity and profitability of fisheries and aquaculture are at present far below the expected
standards. Both activities are suffering from weak management and lack of technical training. In the
case of fisheries some alien species, like Gibel Carp, are disturbing the system which is also a subject
of continuous environmental change. Heavy silting of the lakes is making the waters very turbid,
with a high level of eutrophication. This has caused a loss of breeding habitat, especially for some
high value species, like pike and zander, which could have controlled the alien species in a better
environment. If we consider biological reasons and fisheries as the main reasons for the decline of
valuable species, we can justify the assisted artificial reproduction37 as it improves the possibilities to
develop recreational/sports fishing and traditional fishing.
There are also anthropogenic factors causing problems in the fisheries. The monopolistic fishery
(cherhana) marketing system seems to reduce profits for fishers and that has led to decreased
availability of good quality fish in the local market. It is generally perceived that professional fishing
is becoming a less attractive profession, as it implies hard work. Therefore, the ecotourism venues
should be improved to better accommodate local and international recreational fishers. Household
and village level fish processing (small scale canning and improved smoking) would add value to the
catch and enhance the connection with tourism. The removal or reduction of VAT in the case of
fishery products could help fishers to continue their difficult profession in the area for some more
years. Relocating or increasing the number of fishermen involves building specific infrastructure.
There is a need to review the existing concessions to seize the potential for sustainable and
profitable aquaculture, especially by combining it with sport fisheries. This requires the identification
of funding sources dedicated to the modernization and operation of aquaculture facilities. The
elimination of the access and fishing tax should be reconsidered as an incentive for the development
of aquaculture in the area. It is important to ensure that no more alien species are introduced in the
aquaculture areas and that the wastewater leaving the fish farms meets all EU nitrate and
phosphate standards.
37
Such assistance could include man-made nests in a lake where pike and zander could put their eggs in these "baskets" and the prey (Gibel carp, etc.) will be lower than in the more open spawning areas. This type of assistance for reproduction is common in Hungary (for zander) and Finland (for pike and perch).
Sector-specific objectives
Correcting the ecological imbalance among predator and prey fish species and
restoring environmental quality.
Increasing the economic value of fishing and aquaculture activities.
Increasing quality job opportunities in the fishing sector.
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Figure 17: The current fisheries situation
Table 11. Fishery and Aquaculture: Types of Priorities and Justification
Type of intervention Location Source of funds Justification
Multiplying fish habitats, reducing sedimentation in most lakes by installing stop locks and dredging major lakes to restore water depth
Fortuna and Uzlina Lakes (initially)
Large Infrastructure OP: PA 4- Environmental protection through measures for the conservation of biodiversity, air quality monitoring and decontamination of historically polluted sites
The entire request of the TCC, worth EUR 122 million for the desilting of the lakes, is too expensive (a recurring cost of EUR 10 million per year) and is not consistent with the Natura program and with the DDBRA conservation objectives. All interviewed parties agree that a sustainable dredging/desilting program cannot be built on the existing hydrological data.
Diversifying the activities of fishermen who practice commercial fishing by
The Core Delta, focusing on the north
FMA OP (Fisheries and Maritime Affairs Operational
The TCC does not see recreational fishing as a viable alternative to industrial fishing. Our data indicates that the potential of recreational
82
Type of intervention Location Source of funds Justification
providing services for durable recreational/sport fishing - improving ecotourism venues to accommodate the needs of sport fishers - establishing a restricted area for recreational/sport and traditional fishing in the Core Delta - increasing the fishing license fees and capture monitoring - promoting and providing training in sustainable recreational/sport fishing (catch-and-release fishing, etc.) - regulating or eliminating uncontrolled fish camping
part of the Sulina channel
Programme) fishing far exceeds any foreseeable improvement in industrial fishing, suggesting that it is more compatible with ecotourism and nature conservation objectives.
Improving Aquaculture - surveys on existing concessions to establish if they can be made profitable, including through recreational/sport fishing - applying FLAG to support aquaculture concession investments - providing technical training in sustainable aquaculture and fish processing in farms in order to gain added value - offsetting taxes by eliminating access and fishing taxes
Existing Aquaculture Concessions
FMA OP
The current plans are to revoke non-performing aquaculture concessions and “renaturate” them. This approach involves certain costs without any obvious benefit and would do little or nothing for the local economy. While some concessions are not viable, low-intensity aquaculture/recreational fishing would not negatively affect wildlife or water quality.
- Supporting small scale fish processing - Diversifying household and village level fish processing by introducing small scale canning units for Gibel carp and improving smoking systems, smoking bags or small electric smokers; mainly to produce delicacies for tourists
The Core Delta
FMA OP
There is potential for exploiting the Gibel carp, which is currently a low-value species from the traditional fishing for small scale canning (with spices and herbs) and improving the local smoking systems, in order to produce local delicacies. This would contribute to creating local tourism offers, particularly in the Core Delta. Gibel carp fishing should be allowed even during the closed seasons. This requires changes in the legislation.
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Type of intervention Location Source of funds Justification
Fishery shelters with berthing facilities to support traditional commercial fishing activity
The Core Delta
FMA OP Supporting the transition to recreational fishing will lead, on the long term, to the sustainable development of fisheries areas through improved access to jobs, the active involvement of the local community and greater territorial cohesion
Breeding station for local fish species to sustain and restore populations of declining wild species (perch, pike, wild carp, crucian carp, etc.)
The Core Delta
FMA OP
Supporting the artificial reproduction of valuable species like pike and zander and building wharves in case of an increase in the number of fishermen - Improving the collection and analysis of data relating to fisheries - Improving the fish collection system in the Danube Delta - Strengthening the analytical capacity of the DDNIRD (the Danube Delta National Institute for Research and Development) - Improving research and development activities within research institutes, public institutions and fishermen associations.
The Core Delta and Razim Lake
Competitiveness OP Priority Axis 1: Research, technological development and innovation (RDI) in support of economic competitiveness and business development
The TCC and the DDBRA agree that there is a need for an artificial reproduction of valuable species and for some additional wharves. They also agree with the need for collecting data on fisheries and understanding some defects in the cherhana system, but credible alternatives require additional study. The removal or reduction of VAT in fishery products could help to improve living conditions. The authorities agree on this.
The following interventions should be considered for the 2030 horizon: - Multiplying fish habitats, reducing sedimentation in most lakes by installing stop locks
and dredging major lakes to restore water depth - Diversifying the activities of fishermen who practice commercial fishing by providing
services for durable recreational/sport fishing - Supporting small scale fish processing - Supporting the artificial reproduction of valuable species like pike and zander and
building wharves in case of an increase in the number of fishermen
84
85
Agriculture and Rural Development (ARD)
Agriculture and the rural development sector hold a very important place in Romania's economy.
With almost 30% of the population employed in the primary sector and an important share of the
population living in rural areas, farming activities play a central role in the life of many Romanians.
Just like in the rest of the country, agriculture has always been an important economic activity for
the residents of the study area and is expected to remain an important source of income for most of
them. As mentioned in the Diagnostic Report, agriculture and forestry account for one third of the
total workforce in Tulcea County, followed by fisheries, industry and services.
The structure of production in the study area is largely dominated by field crops. More than 95% of
the total area is cultivated with field crops, mostly cereals (67%), followed by sunflower (21%),
forage (7%) and vegetables (3%). Vineyards cover only 3% of the total cultivated area with the
output mainly going for wine production, while orchards are totally absent, reducing the possibility
of having higher agricultural revenues.
The productivity of the main crops in Tulcea County is lower than the national and EU15 averages.
The average yields for wheat in Romania are 2.8 t/ha, less than half of the EU15 average, while in
Tulcea County the quantity is even lower: 2.2 tons/ha. In the case of corn, the situation is similar –
the national average is a third of the EU15 average (3.4 tons/ha vs. 9.5 tons/ha), while the average in
Tulcea is only 2.9 tons/ha. The average numbers are for the 2006-2011 period38. The differences in
yields are explained by the particularities of the Core Delta: the low quality of the soil (sandy, with
high humidity) and the unfavorable climate conditions (high temperatures and low rainfall).
Farm duality is another structural challenge in the study area, and even more in the Core Delta. In
the Core Delta, only 1% of the total holdings were over 100 hectares, but they used 93% of the total
utilized agricultural area (UAA), while 82% of the total number of holdings that have less than 1 ha
have less than 2% of available land. The gap between large and small subsistence farms is thus more
pronounced in the Core Delta than in the rest of the county.
38
Statistical data were provided by the Tulcea Department of Statistics and the Department of Agriculture
Sector-specific objectives
Promoting the integration of agri-food producers (especially organic products) into
the value-chain in order to help them benefit from the advantage of being close to
external markets and from the tourism opportunities in the area
Supporting diversification of agricultural and non-farm activities for job creation
by encouraging active involvement of local communities
Promoting young farmers' access to land to enable improved revenue flows to the
local population
Preserving, protecting, capitalizing and promoting the natural and movable and
immovable cultural heritage in rural areas
Improving the local population/farmers' access to information regarding the
possibilities of tapping CAP funds - create a special agriculture extension team for
the Danube Delta
86
The Core Delta is facing severe limitations in terms of agricultural productivity as a consequence of
the low quality of soil resources and of the harsh climate conditions and low population density. As a
result, it was declared a Significantly Disadvantaged Area under the 2007-2013 National Rural
Development Program (NRDP) and farmers consequently benefited from specially tailored forms of
support.
Agriculture is expected to remain an important economic activity for the residents of the Danube
Delta (DD) and the surrounding areas. The DD-ARD strategy needs to be aligned with the Medium-
and Long-Term Strategy for Development of the Agri-food Sector (2020-2030) developed by the
Ministry of Agriculture and Rural Development (MARD) in 2014. Moreover, it needs to align with the
overarching objective of this MARD Strategy: to set the path for reaching an “Export-driven, high
value-added and climate-resilient agriculture, with rural living conditions more closely aligned to
urban standards”. Given the particularities of the study area, due to which the Core Delta is facing
severe limitations in terms of agricultural productivity, the development of agriculture and rural
space need to be driven by the following strategic objectives:
Promoting the integration of agri-food producers (especially organic products) in the value-chain in
order to help them benefit from the advantage of being close to external markets and tourism
opportunities in the area. Market and value chain integration are important for most of the agri-food
producers in the Delta and the surroundings areas (the study area). The access to information and
credit lines as well as market penetration are hindered by the fragmentation of the supply, with
tremendous implications on the development of many subsectors. Better market and value-chain
integration of agri-food producers could be achieved by giving priority to: (i) the diversification of
crop and livestock production, especially of economic activities; (ii) investments for farm
modernization and for the development of the food industry (including brands and certification of
products) outside the strictly protected areas; (iii) fostering the establishment of producer groups,
while (iv) developing short supply chains for the benefit of tourism activities.
Supporting the diversification of agricultural and non-agricultural activities for job creation while
encouraging the active involvement of local communities. Tulcea County's economy is highly
dependent on agricultural activities; other production and commercial activities only have a
marginal role. Due to the lack of employment opportunities, the low incomes from semi-subsistence
agricultural activities and the lack of entrepreneurial culture, the rural areas in the Danube Delta
region are facing tremendous challenges. More efforts are needed to establish a healthy business
environment, to develop basic infrastructure, to set-up processing units, and to diversify non-
agricultural activities such as tourism, manufacture, logistics, services, etc. Strategic consideration
should, thus, be given to: (i) supporting non-agricultural activities in the area, including the
protection and promotion of the cultural heritage; (ii) fostering bottom-up initiatives for local
development; and (iii) improving the access to adequate infrastructure and basic services.
Promoting young farmers' access to land to enable improved revenue flows to the local population.
Subsistence farming is a common activity in the study area. The land and farm fragmentation, the
lack of access to finance and investment, the low level of skills and information among farmers, and
an aged rural population are obstacles to the modernization and increased competitiveness of the
agriculture sector. Even more significantly, the study area is affected by the fragmentation of private
land ownership – in small, subsistence households – and a large share of land publicly-owned by the
87
County Council (formerly under state-owned agriculture and fish farms) turned into large,
commercial farms. The local communities can be the main drivers for a sustainable development of
the area as they seek to identify sources of growth, but they need incentives and a stimulating
environment to be able to do so. Enabling access to public land for young farmers will be a key factor
in this process. Consideration will be given to: (i) land release through concessions by Tulcea County
Council; (ii) providing opportunities for new farmers; and (iii) providing viable options for solving the
issues of old farmers and for the transfer of goods/assets. (More details in Annex 7 – Strategic
Objective 3.)
Improving the local population/farmers' access to information regarding the possibilities to tap CAP
funds – creating a special extension team for the Danube Delta. Poor accessibility and low population
density have had a significant impact on service delivery in the study area and have led to a low level
of education and skills among the population involved in farming or other activities. In agriculture,
knowledge and information have become critical factors in conducting a profitable business and
farmers are now, more than ever, aware of the need to be connected to the latest information,
technologies and developments. Poor access to knowledge, innovation and research results has had
a strong impact on the farmers in the study area, with small holdings being the most affected due to
their lack of resources and networks. This has contributed to a general gap in modern farming know-
how and has had negative effects on the competitiveness of these small farms. In order to facilitate
the access of farmers and rural population to knowledge, guidance and information, specific
attention should be given to: (i) improving the access to extension services and other networks for
both farmers and rural population (through a special extension team); (ii) extending the access to
training and vocational education; and (iii) improving the access to the ICT infrastructure in order to
attract businesses and the younger population. (More details in Annex 7 – Strategic Objective 5)
Horizontal issues to be addressed: The strategic ARD objectives and the subordinated lines of action
will be difficult to achieve in the absence of a series of policy instruments which need to be pursued
at national level. These include the following:
Solving the land ownership deficiencies to ensure a smooth transfer of assets through an
active land market;
Promoting a stimulating social package for elderly farmers willing to retire from farming and
to release their land (complementary to the land reform and assets transfer);
Implementing a predictable fiscal framework in agriculture in order to incentivize further
private investments and confidence in the sector; and
Pursuing nation-wide efforts for the training of farmers and rural inhabitants by reforming
the advisory, research and innovation systems and by encouraging the farmers' enrollment
in the European Innovation Partnerships (EIP).
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Figure 18: The current agricultural situation
Table 12. Agriculture and Rural Development: Type of intervention and Justification
Type of intervention Location Source of
funds Justification
A. Physical Investments
The modernization of facilities for the collection/processing/marketing of agricultural products
The entire DDBR
territory
National Rural Development Program (NRDP) Measure #4
The modernization of the collection and processing facilities for agricultural products is highly needed in the study area, as these products are either used for own consumption or sold directly on the market. The products processing and marketing activities would favor the development of the local economy and would create strong connections among agri-food producers, tourism operators and consumers. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #1.
The modernization of the rural The entire NRDP The poor status of the rural
89
Type of intervention Location Source of
funds Justification
infrastructure (water, sanitation, roads, schools, dispensaries etc.)
DDBR territory
Measure 4. ROP/NRDP (for the activities not funded by the NRDP)
infrastructure hinders the development of the study area and maintains the rural-urban gap. The modernization and expansion of the infrastructure related to water supply, sanitation, local roads and schools are key to improving the living conditions of the rural communities in the Delta and the surrounding areas. An adequate infrastructure and basic services are also prerequisites for foreign capital inflows and for enhancing the attractiveness of the area. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #2.
The diversification of non-farming activities (including crafts)
The entire DDBR
territory
NRDP Measure 6
Agriculture plays a disproportionate role in the socio-economic fabric of the study area. With limited jobs in other economic areas and most of the rural population employed in subsistence and semi-subsistence farming, the younger generations are leaving the Delta in search of better opportunities elsewhere. While agriculture will remain one of the most important activities in rural areas, the diversification of non-agricultural activities towards tourism, services, handicrafts, logistics, etc. will be of the outmost importance for providing additional income to the rural population and absorbing the workforce from the subsistence farming activities. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #2.
Job creation All
communes
NRDP Measure 4 Measure 6
The study area's economy depends almost entirely on small farming activities related to crop and livestock production, while the incomes and opportunities in other
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Type of intervention Location Source of
funds Justification
sectors are scarce. There is therefore a high need to create new job opportunities in other economic sectors so as to absorb the workforce currently enrolled in subsistence agricultural activities and to create new income opportunities. New job opportunities could be created by investing in the creation of off-farm activities such as crafts, manufacture or even processing activities. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #2.
Initiating actions to protect, improve and promote natural and cultural resources
The entire DDBR
territory
NRDP Measure 10 ROP Axis 5
Climate change and more intensive agriculture have put at risk the agricultural activities in the area and the sustainability of water and soil resources. Incentives for the use of environmentally-friendly farming practices, technologies with a minimum impact on soil, adequate facilities for manure storage, etc. are therefore needed in order to maintain the landscapes and protect the environment. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #1.
The completion of land restitution and land book registration for land/farms consolidation
The entire DDBR
territory
ROP National Program of Cadaster and Systematic Registration in the rural area
The incomplete reform of the real estate market and the unfinished registration of properties pose severe constraints to the development of the ARD sector in the study area. In addition, it affects the access to financial resources and contributes to a climate of insecurity. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and supports the resolution of the main horizontal issue.
Support for environmentally- The entire NRDP A sustainable development of the
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Type of intervention Location Source of
funds Justification
friendly agricultural activities within Natura 2000 sites
DDBR territory
Measure 10
protected areas, especially of Natura 2000 sites, is of the utmost importance for the Delta. Farmers located in these areas need adequate support to continue their farming activities in harmony with the environmental protection objectives. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #2.
Extending the access to vocational education for agriculture
The entire DDBR
territory
NRDP Measure 7 HC OP (Human Capital Operational Programme) Axis 6
Human capital development through training and vocational education is critical for the sustainable development in the rural areas and for occupational diversification. The evolution and specialization of the agricultural sector requires an appropriate level of technical and economic vocational training, as well as an increased capacity to access knowledge and information, including through information dissemination actions. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #2.
The modernization of quality control systems for agricultural products
The entire DDBR
territory
NRDP Measure 4
With the development of market opportunities in the area (including through short supply chains to tourism facilities), enhancing the quality control of crop and livestock products becomes critical. Farmers and agro-processors would need to invest in technical facilities in order to comply with the national and European standards imposed by the European legislation. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #1.
Risk management at farm level The entire NRDP The agricultural production is
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Type of intervention Location Source of
funds Justification
DDBR territory
Measure 17 strongly dependent on climate change, a situation imposing the farmers' access to specific funds to (partially) compensate the losses caused by natural disasters or other adverse events and to allow for the restoration of the damaged assets. The risk management schemes should be able to cover the damages caused not only by adverse climate events but by plant and livestock pests and diseases, and environment incidents as well. Such schemes should provide general protection to farmers facing a disruption of the activity and/or production losses. The intervention addresses the needs identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #1.
Organizing information events on local and European financing, including preparation projects
All communes
NRDP Measure 1 Administrative Capacity OP
Improved awareness and adequate information on existing and future EU, national and local funding opportunities among farmers, rural dwellers, public authorities and other stakeholders are essential needs in order to speed up the absorption capacity. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #2.
Providing consulting and training for farmers/rural workforce
The entire DDBR
territory
NRDP Measure 2 Administrative Capacity OP
Consulting and training activities are necessary for farmers in order to increase the economic viability and performance of their holdings and to gain access to the latest developments, innovations and technologies. The agricultural consulting services would support small farmers, young farmers, other individuals willing to start non-farm rural activities and producers' groups in developing and managing the implementation process, as well as in drafting the
93
Type of intervention Location Source of
funds Justification
business plan for the development of market-oriented agricultural holdings. Nevertheless, the advisory services should inspire rural actors to practice sustainable and environmentally friendly farming in accordance with the specific requirements of the area. The intervention addresses the need identified in the Needs Assessment Report, Pillar II, Section 3, and helps achieve the Strategic Objective #2.
The following interventions should be considered for the 2030 horizon:
- The modernization of facilities for the collection/processing/marketing of agricultural
products
- The diversification of non-farming activities (including crafts)
- Job creation
- Initiating actions to protect, improve and promote natural and cultural resources
- Support for environmentally-friendly agricultural activities within Natura 2000 sites
- Extending the access to vocational education for agriculture
- Organizing information events on local and European financing, including preparation
projects
- Providing consulting and training for farmers/rural workforce
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Pillar III: Improving Connectivity
The efficient transport of people, goods, services and ideas is a critical condition to bridge a gap with
a leading region. As outlined in the previous two chapters on transport and ICT infrastructure,
addressing investment requirements and policy constraints in both sectors will generate
opportunities, not only for the production sectors (Pillar 2), but also for more innovative education
and health services, to help them overcome the lack of economies of scale or the lack of viable
transport alternatives (Pillar 4).
Transport
The efficient transport of people, goods and services is a critical condition to bridge a gap with a
leading region and there are two overarching objectives for transport development in the study
area. The first objective is to increase the territorial connectivity and to ensure access to markets in
Tulcea, in the rest of Romania, and also in the EU. The second objective is to increase accessibility in
the Core Delta to support the development of tourism and fisheries and the mobility for sparsely
populated areas.
The connectivity objective requires a modern infrastructure system that reduces the time spent for
people and goods to move to and from the Delta. Given the availability of a natural transport
resource in the waterways, it is essential to develop this mode of transport by protecting the
channels (particularly bank protection works along the Sulina channel), to develop the ports
(particularly Tulcea Port) and to promote multi-modal transport. A key part of the transport strategy
is to promote the waterway transport, as it is cost effective, although environmentally sensitive, and
through modal shift contributing to the reduction of carbon emissions. The transport strategy also
envisages the modernization of the airport, an improved road to Constanța and building a bridge in
Brăila, to better connect with the North of Romania, with Moldova and Ukraine.
The accessibility objectives will also focus on the use of the waterways, with targeted dredging of
the channels in line with the requirements imposed in the fisheries and tourism sectors, and –
equally important – through improved and more regular ferry transport services. There are a
number of existing ports (particularly along Sulina channel) which need to be modernized in order to
facilitate local movements but also to promote tourism. Outside the Core Delta, improved county
roads will facilitate the access of local communities to key social and economic facilities. In the Core
Delta, an improved road from Tulcea city to Chilia Veche will benefit a number of communities. This
Sector-specific objectives
• Increasing territorial connectivity to ensure access to the markets in Tulcea, the
rest of Romanian and the EU; equal connectivity for entreprises, individuals, and
goods in the DD territory, taking great care to protecting the existing
environmental heritage.
• Increasing accessibility in the Core DD area to support the development of
tourism and fisheries, and the mobility for the residents of sparsely populated
areas.
• Improving health and protecting the environment by minimizing emissions and
the consumption of resources (including energy) by the transport system
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will have to be done taking into account some key environmental safeguards.
Infrastructure alone will not be sufficient to improve the transport systems in the Danube Delta.
There is a need to revise the regulatory framework for the provision of transport services. Changes
are required that will promote greater mobility while at the same time protecting the environment.
Mobility studies are required to review the urban traffic situation in Tulcea city and to assess the
capacity and traffic management issues. There is a key role for the private sector in operating some
of the transport and port facilities in the Danube Delta, and for the public sector to develop an
enabling environment for the development of the private sector.
The following map shows the location of the identified transport projects: national and county
roads, ports, airports, railway, roads and bike roads.
Figure 19: Transport Networks in Tulcea County
Table 13. Transport: Type of intervention and Justification
Type of Intervention
Location Source of
funds Justification
The modernization of ports
Tulcea, Sulina, Măcin, Isaccea,
Mahmudia and Chilia
LI OP Priority Axis #2
The main port for the Danube Delta is in Tulcea. There are plans to develop this port in order to improve inter-modal connections and to develop logistics platforms that fulfill the need for road transport to neighboring regions. There is also a potential for tourist development, including cruise ships and pleasure boats. The port of Tulcea is the main gate to the Danube Delta and is part of the TEN-T comprehensive secondary network. In order to ensure normal traffic conditions for
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Type of Intervention
Location Source of
funds Justification
freight and passengers, Tulcea Port Administration has identified the following modernization works: 1. The elimination of alluvial deposits in the Danube River, by performing hydro technical works for the adjustment of the Danube currents, by constructing breakwaters for the elimination of alluvial deposits on Mm 41 - Mm 42 on the left bank, resulting in the elimination of alluvial deposits downstream (Industrial Port, Commercial Port, the Seafront Area). 2. A terminal for petroleum products in Tulcea Port: the project involves an investment plan in Tulcea Port Mm 36, concerning an industrial site consisting of an oil terminal. 3. A terminal for cereal products in the port of Tulcea: the project involves an investment plan in Tulcea Port Mm 35, concerning an industrial site consisting of a grain terminal. 4. Necessary dredging works for Tulcea Port in 2014 – 74.000 m3.
Tulcea Port – Central Industrial Port Overhaul works on the river quay; creating a 320 meter-long docking frontline at the technical operation level of -7 at low water level, for technical works linked to the general cargo/vessel-related operations in Tulcea.
Tulcea Port – Central Commercial Port Rehabilitation of the railway company in the Commercial Port (specialized cargo vessels mooring operations for the localities in the Delta). Overhaul works at the sloping quays and turning them into vertical ones (-3.50 technical operation level at low water level in Tulcea) for general cargo and vessel-related operations;
Tulcea Port – Central Construction Company (IEAMC) Repair works and works for the transformation of sloped quays into vertical quays for containerized freight operations. The endowment with equipment for the transshipment of the containers, the building of a platform for multimodal transport and the rehabilitation of the access roads to the port platform, and the connection to the Tulcea county belt;
Tulcea Port – River front
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Type of Intervention
Location Source of
funds Justification
Expanding the walking area of Tulcea city by building a suspended platform of approximately 100 lineal meters of pillars along the fenced area with the possibility of creating parking spaces for recreational vessels. Repair works and works for the transformation of sloped quays into vertical quays for river and maritime operations and for subsidized transport for Delta residents; A permanent video monitoring system (24 /7) for security.
Tulcea – MARINA Port The modernization of the existing port for recreational boats – in the south-eastern part of the Tulcea port.
The development and modernization of the airport infrastructure
Tulcea county in M. Kogălniceanu
commune
LI OP Priority Axis #2
Tulcea Airport facilitates the rapid movement of people and perishable goods, boosting trade and cargo shipments. An airport with low-cost services offered by operators will facilitate the development of tourism in the region. The airport in Tulcea is currently handling relatively few passengers, all of which are using chartered services. The airport can support the Danube cruise industry but airlines are reluctant at the moment to use the airport because of the small space for parking and turning the aircrafts.
The rehabilitation and modernization of the Sulina Chanel
Sulina channel
LI OP Priority axis #2
Sulina Channel, which is maintained for maritime navigation, takes approximately 19% of the Danube water flow. It has a length of 64 km, a maximum width of 250 m, a maximum depth of 18 m and a minimum depth of 7.32 m. The rehabilitation of the banks is required to ensure the proper conditions for navigation and the protection of the Sulina channel banks against erosion through: • Technical works to achieve river bed stabilization, fairway restoration and the protection of Sulina Channel banks, to reduce water flow and the amount of alluvia entering the channel at the junction with Sf. Gheorghe channel; • The optimization of dredging works to ensure the minimum navigation depths at the mouth of the sea, the arrangements for retaining alluvia upstream of Sulina bar and directing the currents into the sea; The necessary works will complement previous and ongoing works, as follows:
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Type of Intervention
Location Source of
funds Justification
- “Bank protection on Sulina Channel – Stage I” started in 1986, - “Bank protection on Sulina Channel and topographic measurements and signaling system on the Danube river” - “Hydro technical works to restore, strengthen and defend the right bank of the Sulina Channel in the localities: Maliuc – Gorgova – Vulturul destroyed by floods in March-April 2000, Tulcea County.”
The rehabilitation of county roads and urban mobility support
The entire DDBR territory
Regional OP Axis 6 Improving road infrastructure of regional importance
The transport infrastructure must ensure the flow of persons, goods and services between different areas, regions and countries; it must improve comfort and reduce costs. Harsh weather often leads to the disruption of traffic on gravel or earth roads. Such roads are often the only connection between a community and the emergency services. In the Core Delta there are some significant constraints to road building both because of physical difficulties and because of environmental and economic constraints. However, there is a social need to provide an all-weather road connecting the north part of the Core Delta, from Chilia to Tulcea, in order to provide the residents with access to key social and economic facilities.
The modernization of the county road DJ229E, Sections I and II, NICULIŢEL – intersection with the national road DN22 – ZEBIL – SARICHIOI (INT. DJ222), KM 3+300 - 54+795, L = 51,495 km. This will enhance the economic potential of the following localities: Niculițel, Valea Teilor, Alba, Izvoarele, Iulia, Nicolae Bălcescu, Turda, Mihai Bravu, Satu Nou, Zebil and Sarichioi, with a total of 17,313 inhabitants, providing them access to the TEN-T network (Constanța – Tulcea – Brăila – Galați)
The modernization of county road DJ222N, Tulcea-Pardina-Chilia Veche, Km 0 – 66 km. In contrast to the residents of the neighboring areas, the people living in the Core Delta do not have access to a network of roads.
This rehabilitation will provide access to basic services in Tulcea in difficult weather conditions and will enhance tourism in the north part of the Core Delta (in the Chilia Veche, Pardina and
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Type of Intervention
Location Source of
funds Justification
Ceatalchioi communes) with a total of 3,252 inhabitants, providing them access to the RTTE network (Constanța – Tulcea – Brăila – Galați).
The following interventions should continue until 2030: - the modernization of ports
- the rehabilitation of county roads and urban mobility support.
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Information and Communication Technology (ICT)
The development objective of the proposed intervention in ICT is to increase the benefits of
citizens and businesses through an accelerated participation in the information society and in the
economy. The intervention will be based on a three-step approach with specific objectives: first, to
provide internet connectivity to underserved communities and improve citizen and business
community access to ICT through Local Community Electronic Networks (LCeNs, with access points
in schools, public administration, public libraries and public point of access points (PAPIs). Second,
improving digital and other competencies of individuals to increase their participation in the
information society. Third, developing and enhancing the quality and benefits of ICT usage in
schools, businesses and public administration by providing e-content and value-added services that
address local needs. Two priorities which will contribute to the highest extent are:
Increased access to broad-band internet/ultra-fast internet for green tourism
ICT Support for businesses through the e-portal and by facilitating the obtaining of a grant
Physical investment needs are connected to the increased access to broadband internet, including
the equipping with PAPIs, particularly in the Core Delta. While there are physical challenges to
provide affordable broadband internet access in the Core Delta, this is the area that will benefit the
most from the extended access. This could be done by creating Local Community Electronic
Networks (LCeNs) with multiple internet public access points (PAPIs), as done elsewhere in Romania,
rather than by the more costly option of providing every household with broadband internet.
The access of the business community to knowledge can be facilitated through an e-Portal and
through a grant facility. A portal could promote e-commerce and business networking, providing
SMEs with relevant information and advice for their businesses, business tools, training, references,
etc.; a facility to disseminate knowledge, to establish contacts for the commercialization of new
products, and to develop supply chains. A grant facility could be established especially for SMEs, for
self-employed persons, for family associations and enterprise consortia in order to accelerate the e-
business adoption process.
Table 14. ICT: Type of intervention and Justification
Type of Intervention Location Sources of funds
Justification
Increased access to broadband internet/ultra-fast internet for green tourism
White spots
COMP OP Axis 2 (The Competitiveness Operational Programme will only finance 500
This intervention meets the needs identified in the Needs Assessment Report, Section III.2.4 and supports all three sector-specific objectives, including improving the access to information. Justification: The physical investment needs
Sector-specific objectives
• Providing full access to broadband internet network
• Supporting widespread private, business and public use of ICT
• Ensuring synergies with other sectors to promote the transfer of knowledge,
services and economic development
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Type of Intervention Location Sources of funds
Justification
PAPIs at national level and will target larger communities, particularly disadvantaged communities)
must increase the access to broadband internet, including equipping PAPIs, particularly in the Delta. While there are physical challenges in providing internet access in the Core Delta, this is an area that would benefit a great deal from the extended access. This could be done by creating Local Community Electronic Networks (LCENs) with multiple public access points (PAPIs), as done elsewhere in Romania, rather than by the more costly option of providing every household with an internet connection.
ICT support for businesses through the e-portal and funding centers
The entire DDBR territory
COMP OP Axis 2 (Action 2.2.2 will only finance the development of a monitoring infrastructure for on-line transactions and will support the certification procedures)
The intervention meets the needs identified in section III.2.7 of the Needs Assessment Report, and supports the 2nd and 3rd sector-specific objectives. Justification: Business access can be facilitated through an e-Portal and through funding centers. A portal could promote e-commerce and business networking, providing SMEs with relevant information and advice, tools, training, references, etc. for their businesses; a way to share knowledge, establish contacts for the commercialization of new products and to develop supply chains. A funding center could be established for SMEs, self-employed persons (SEPs), family associations (FAs), and company trade unions to accelerate e-business adoption.
Formulating and implementing open data policies
The entire DDBR territory
Administrative Capacity OP Axis 2
This intervention addresses the needs specified in section III.2.5 of the Needs Assessment Report and contributes to sector-specific objectives 2 and 3. Justification: Open data connected to the environmental and economic management will be the cornerstone for enhancing participatory decision-making and will contribute to transparent benefit-sharing in the Danube Delta Region. The availability of local data will allow for the development of the knowledge-based economy, as well.
Improving e-government services and local public monitoring systems
The entire DDBR territory Administrative
Capacity OP Axes 1 and 2
This intervention addresses the needs specified in section III.2.6 of the Needs Assessment Report and contributes to all sector-specific objectives. Justification: Local public authorities have made some effort to increase their internet
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Type of Intervention Location Sources of funds
Justification
presence, and most of them maintain a website, though these are not always updated, nor do they generally offer any online services. They should apply an open data approach, increase the amount and quality of the e-governance services they offer, and be integrated into the LCeNs. Local public data monitoring systems should be able to inter-connect and provide comprehensive information.
The following interventions should be considered for the 2030 horizon:
- Increased access to broadband internet/ultra-fast internet for green tourism
- ICT support for businesses through the e-portal and funding centers
- Formulating and implementing open data policies
- Improving e-government services and local public monitoring systems
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Pillar IV: Providing Public Services
This sub-section covers the following basic service needs assessments: water supply and sanitation,
solid waste management, education, health and social inclusion. The outlined investments and
programs are based on the assessed needs but the specific technical options and alternatives for the
improvement of services needs to be further studied to assess their feasibility and sustainability.
Water supply and sewerage systems (WSS) and integrated water management (IWM)
Across the study area and more critically in the rural areas in the Core Delta, WSS access gaps are
significant. Regarding IWM, it is vital that the water bodies achieve a good ecological and chemical
status, in order to protect human health, water supply, natural ecosystems and biodiversity.
There are still small villages – especially in north-east of the Core Delta – without access to the
drinking water network. Water supply is a service indispensable to human settlements and their
economic development, with major impacts on human health, the environment, tourism, agriculture
transport and disaster risk management.
Furthermore, in most of the localities equipped with water supply systems, the condition of the
infrastructure and the quality of services have deteriorated over the past decades due to a chronic
lack of maintenance activities. The main objective is therefore to achieve universal access to services
within the study area, and to ensure a quality of services consistent with national and EU standards:
the individual connection of households to the water supply network, adequate levels of water and
wastewater treatment, collective sanitation systems or individual sanitation in smaller villages.
The infrastructure design should take into account the specific technical challenges in the study area
(the population density, increased levels of groundwater, the lack of adequate groundwater
resources, etc.), and apply – where necessary – low cost and low complexity technical solutions (in
particular for wastewater collection and treatment). On-site treatment could be used for smaller
agglomerations, using raised pit latrines or septic tanks to be emptied regularly. Due care should be
given to the use of centralized sanitation systems which need a certain self-cleaning flow and are
prone to clogging if such flow is not ensured. Although it could sound appealing to connect all
households to sanitation systems, it should be kept in mind to avoid replacing the diffuse pollution
caused by pit latrines with a high degree of pollution caused by the blocking of a sanitation system in
the middle of the village, due to the absence of a self-cleaning flow. A more expensive solution could
be re-pumping the sewerage or through vacuum sewerage systems, both with their advantages, but
definitely with high maintenance costs which could push any such project over the affordability
Sector-specific objectives
• Providing drinking water in order to meet the quality of life standards and the economic
development objectives, subject to demand, financial feasibility, and operation and
maintenance constraints
• Supporting the collection of wastewater in a centralized manner (subject to demand,
financial feasibility, and operation and maintenance constraints) and moving away from
the current use of pit latrines which constitute a health hazard in prone to flood areas
• Adopting treatment methods of centrally-collected wastewater either in a conventional
or a more low-cost way
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threshold. In case there is enough flow and load for a conventional centralized sewerage system, this
has to be connected to a wastewater treatment plant, which could use a constructed wetland
system as secondary step, taking advantage of the vast areas with reed and using their filtration
capacities for treating the biological load for small communities. The selection of appropriate
treatment for sewage between: a) a conventional 2-stage approach, b) modular containers c)
constructed lagoon platforms or d) a mix of the abovementioned solutions, will be performed in the
feasibility stage, when an independent analysis of the local conditions and a costs and benefits
analysis will be carried out.
The type of technology chosen for water/wastewater treatment will be decided at the stage of the
feasibility study, the next step in this investment program. However, the technologies to be used for
water/wastewater treatment are relatively known and limited. The main issue in the DD area is the
transport and distribution of the treated water and of course, the collection and transport of
wastewater to the wastewater treatment plant (where applicable). Based on the level of
groundwater and on the degree of dispersion of the villages, proper solutions for the transport and
distribution of treated drinking water (most probably using a central water tower and then supplying
the residents with the help of gravity) and collection of wastewater (either by re-pumping or by
vacuum sewage) will be used. In the case of villages with very scattered population, the individual
wastewater collection and treatment might be considered for a household or for a group of
households.
The prioritization of investments should take into consideration the affordability of paying for
improved services as well as the economic potential of the area and the degree of readiness of the
future beneficiaries, in terms of feasibility studies/technical design already prepared for future
investment needs. The financing of the proposed investments could be covered by two major EU
Operational Programmes: Large Infrastructure Operational Programme for communities larger than
2000 population equivalent (P.E.) and the National Rural Development Program for smaller
communities. As Romania's priority is to comply with the Urban Wastewater Treatment Framework
Directive in terms of compulsory treatment of wastewaters in communities larger than 2000 P.E, the
EU funds will need to be targeted with priority to those communities. The financing of wastewater
collection and treatment for the communities smaller than 2000 P.E. could be done on an
exceptional basis from the National Program for Rural Development or from the national budget –
through the National Plan for Local Development. As the EU funds are strictly targeted towards
public services, there is no room for private involvement in the water sector.
The regionalization of services, partially achieved in the county, should be followed up further as it
represents the only opportunity to achieve the completion of the required WSS infrastructure and
the provision of high quality, sustainable services in small localities. Based on current constraints and
challenges in the villages in the Core Delta, the incorporation of all communes as members of the
Water IDA is strongly recommended. Beyond the physical investments in water and sanitation
networks or in treatment plants, it is anticipated that the strengthening of the technical capacity of
the Regional Water Operator might be necessary. This could be achieved by establishing a Regional
Dispatcher's Center for the monitoring of the water supply and sanitation service, where all relevant
technical data are monitored in real time, allowing for a faster decision-making process. Further on,
energy efficiency improvements for the WSS systems and the full coverage by water meters for all
consumers can be taken into consideration as well.
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In the Core Delta, the water utility bill (for both water supply and sanitation) is 50% subsidized.
Although the measure is meant to support the living conditions of the poor population in the area,
this subsidy could lead to wastage in the form of treated water being used for irrigation, for which
non-treated water sources could have been a more cost-effective alternative. Due to its “territorial”
coverage, this subsidy also covers hotels and tourist pensions, which would not normally enter in the
category for which the subsidy was designed. Therefore the subsidy will be reviewed as part of an
overall review of subsidies, in order to ensure affordability for the poorer segments of the
population.
An important aspect which could help in providing affordable water supply and sanitation is to use
photovoltaic panels for the power supply of small and medium size treatment plants, in order to
reduce the power consumption from the central grid. This will also have a beneficial effect on
climate change resilience.
Figure 20: The current situation of water supply, sanitation and integrated water management
Table 15. Water supply and sanitation systems: – Type of intervention and Justification (according to the
prioritization made under the PNDL)
Type of intervention Location Source of funds
Justification
The extension and rehabilitation of the water and wastewater infrastructure in the Danube Delta ITI IDA territory
Tulcea, Babadag, Măcin, Sulina, Isaccea,
LI OP Axis 3 + The Environment Fund and the
In the latest survey conducted at the request of the World Bank in 2014, the connection rate to
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Greci, Văcăreni, Somova, Maliuc, Sarichioi, Chilia Veche, Crișan, Smârdan + I.C. Brătianu, Grindu, Jijila, Luncavița, Mahmuhia, Niculițel, Slava Cercheză
PNDL water supply systems has now reached 95% of the total population, the most important issues being reported in C.A. Rosetti and Ceatalchioi communes. Sanitation is provided in villages mostly based on individual schemes and the connection to centralized systems is irrelevant in many cases due to the low density of the population. The Danube Delta is the most deficient area in terms of access to drinking water. Groundwater can be found at depths of 2-5 meters, but because of the sedimentary nature of the Danube Delta soil, the water is rich in many substances generated by decomposing sediments, such as sulfides, in the Ceatalchioi area, for example. In this context, the residents of the areas lacking quality water fountains will consume untreated water directly from the Danube, after boiling it. This applies to 17% of the residents of the areas without running water. In the areas with no centralized water supply system,
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schools and municipalities have their own deep wells with variable water quality. In another respect, the discharge of untreated or insufficiently treated wastewater from rural localities into the Danube and other adjacent rivers and the infiltrations from the old sanitation networks existing in the cities are a threat to the Danube's water quality and to the biodiversity in the area. In addition, Tulcea city has not had a wastewater treatment plant until recently, wastewater being discharged directly into the river, but the investments must continue in order to ensure that all wastewater gets into one main collector to transport it to the treatment plant. In 2015, the city wastewater treatment plant operates at 45% of the designed capacity, the remaining volumes being discharged directly into the Danube. Even in the (mainly urban) localities that have centralized water supply and sanitation, there are problems concerning the old age of the
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pipes, leading to leaks in the network, soil infiltration, frequent interruptions of supply, low pressure etc., along with residential areas that have no utility networks and where the owners have improvised temporary solutions on their own. The project for the expansion and rehabilitation of the water and sanitation network, focused mainly on urban and rural agglomerations of more than 2,000 inhabitants, will significantly improve the quality of life and the health of the population and the protection of the Danube Delta resources and biodiversity.
The prioritization of projects in the water supply and sanitation sector:
The water supply, sanitation and wastewater treatment needs of the people living in the study
area are numerous, and these topics have been addressed in the Needs Assessment Report.
They can be categorized in the following domains:
- New water treatment plants with a transport and distribution network for communities
with no drinking water supply
- Improving the water source/equipment used in the existing water treatment plants in
order to improve the quality of the supplied drinking water
- Improving the water distribution network by replacing old pipes in order to reduce
leakages and interruptions in the water supply service
- Sewerage collection and treatment for communities higher than 2000 p.e.
- Local solutions for sewage collection and treatment for smaller communities.
The needs analysis shows that each community has needs in one or more of the
abovementioned categories. The following criteria were used for project prioritization.
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- All communities should have a water supply service compliant with the national
standards (a priority would be to finance water treatment plants and water distribution
networks for the communities where there is no current drinking water supply)
- The existing water treatment centers should be rehabilitated in order to increase the
quality of the water supplied
- The degree of readiness for launching the investment (communities which have drafted
feasibility studies covering their needs were given priority)
- The local economy and tourist potential were taken into consideration, as the
economic/tourist potential are signs of sustainable development
- Based on the abovementioned criteria, a score was calculated and a hierarchy of
communities was developed and they were classified into two groups: (a) Communities
with a population greater than 2,000 inhabitants (to be financed under the EU “Large
Infrastructure OP”); and (b) Communities with a population of less than 2,000
inhabitants (to be financed under the EU “National Rural Development Program”).
The extension and rehabilitation of water and wastewater systems should continue through 2030 for localities that are deemed eligible in the Regional Water Masterplan.
Solid Waste Management (SWM)
As a vital center for biodiversity in Europe and a recognized world natural heritage area, the
government and local communities in the study area need to make concerted efforts to prevent
pollution and ensure environmental protection. Across Romania, the incomplete coverage of
household waste collection and separation services, especially in rural areas, has been highlighted by
the European Commission39. The current municipal SWM system in the study area has a low waste
collection rate, especially in the Delta (DDBR) villages, with insufficient and costly waste
transportation services between Tulcea and the Core Delta, and a low recycling rate. In Tulcea City,
for example, the recycling rate was estimated at 6-7% in 2013, probably above the national average
but still far below EU standards (over 50% recycling rate is already achieved in Germany and the
Netherlands). Waste floating down the Danube from upstream areas is another problem in the
Danube Delta and should be addressed through investments and the operation of adequate
collection and processing facilities. There is much room for improvement in SWM, in order to have a
well-protected world natural heritage along with local economic development.
39
European Commission (2011) - Roadmap for Romania, 070307/2011/606502/SER/C2.
Sector-specific objectives
• Improving the recycling rate so as to achieve the corresponding EU target of 50% to
which Romania is committed
• Implementing of waste reduction, reuse and recycling in local communities, in order
to assure efficient and sustainable management, resource saving, environmental
protection and tourism destination development
• Management of floating waste material
• Increasing the capitalizationdegree of waste collected from households and
businesses
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Romania must comply with the EU Waste Directive and achieve the EU target of 50% recycling of
municipal solid waste by 2020. The study area should aim high and strive to become a national role-
model and promote sustainable solid waste management by: (i) achieving the EU target of 50%
recycling rate (which Romania is committed to); and (ii) demonstrating the effective application of
the principle of the 3Rs (waste reduction, re-use and recycling) in the local communities for
sustainable waste management, resource-saving, and environmental protection. A functional
integrated solid waste management system is essential to improve the level of waste collection and
separation, both at source and in a centralized manner, across the study area. The specific waste
targets imposed by the national and EU legislation (the obligation for selective collection and sorting
for at least paper, metal, plastic and glass) cannot be reached unless the study area continues to
take action in strengthening its solid waste management system. Particularly, the area needs to: (i)
improve the household waste collection rate, especially in the rural areas, by providing reliable and
financially sustainable waste collection and transportation services during the next EU budget
installment; (ii) enhance waste separation at source by improving awareness-raising and by changing
the behavior of local residents and tourists; (iii) minimize the amount of waste disposed of in
landfills by promoting recycling by other waste treatment means; and (iv) collect and eliminate the
floating waste in the Delta.
The local authorities in the study area are committed to addressing the SWM issues and make
efforts to establish an integrated SWM system. A series of recent investment programs in the region
have improved the situation. An on-going investment program to develop an Integrated Waste
Management System in Tulcea County, with an EU grant of over 20 million Euros for the 2014-2015
period, is expected to significantly improve recycling rates and address many waste flow problems in
the county. It is expected to become fully operational by 2016. However, up until recently, there
were no significant efforts in the study area to aim at promoting waste separation at source, at
household level – into (at least) recyclable materials, organic waste, and other waste/garbage.
Additional physical investments will be necessary in order to further minimize waste disposal and
achieve recycling targets for packaging waste even though the ongoing investment program foresees
extending the selective collection of recyclable waste from the population, companies and
institutions, in both urban and rural areas.
Figure 21: The current solid waste management situation
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Such investments should target waste separation at source and the development of sustainable
facilities for the separate collection of waste, its transfer, sorting and transportation. This would
include the provision of different-colored plastic bags for households, or smaller or colored bins, for
different waste types at household level, and the design and construction of additional facilities for
selective waste collection management and recycling. Specifically, additional investments should
target: (i) SWM systems for handling sorted solid waste from households; (ii) composting bins for
rural households to process organic waste; (iii) collection equipment/facilities for the floating waste
in the Delta; (iv) treatment and disposal facilities for construction and demolition waste; and (v)
educational and awareness programs on waste management.
Table 16. Solid Waste Management: Type of intervention and Justification
Type of intervention
Location Source of
funds Justification
Investments in SWM Systems for the separate treatment of waste (waste separation at source, collection, sorting and transportation facilities).
The entire DDBR territory
Large Infrastructure OP, Axis 4
(4.2.1 + 4.2.2)
Additional physical investments will be necessary in order to further minimize waste disposal and achieve recycling targets. Investments should target waste separation at source, the development of waste collection, transfer, sorting, and transport methods. This process can first be piloted in a few communities for a period of 2 or 3 years and gradually be expanded to the entire study area. A feasibility study, good planning and design will be needed. Specific activities include the provision of different-colored plastic bags for households or smaller different colored bins for separating waste and the design, provision, and
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Type of intervention
Location Source of
funds Justification
construction of new centers for waste separation and recycling.
The purchase pf composting bins for rural households to process organic waste
The entire DDBR territory
Large Infrastructure OP, Axis 4 (4.2.1 + 4.2.2)
Romania has to reduce its landfilled biodegradable municipal waste (BMW) to 35% of that produced in 1995, by 2020. BMW from households is currently disposed together with all waste types; there is no separate method for the collection or treatment of waste in landfills. Home-composting is an efficient way to divert biodegradable waste and can be done with limited costs, at a small scale, in the backyards of many rural households in the study area. More outreach to rural households and local tourism business entities is needed, as well as additional composting bins for rural households, to ensure that the process is carried out in every household and to encourage the use of the compost in agriculture. This could be achieved gradually, starting from local tourism and business entities and gradually reaching home-composting, eventually covering the entire study area. Later on, urban specialized centers for composting waste could also be established.
The collection of floating waste in river channels
The entire DDBR territory Large
Infrastructure OP, Axis 4 (4.2.1 + 4.2.2)
Waste floating down the Danube River from upstream represents a problem in the Delta and should be addressed through investments in and operation of adequate collection and processing facilities. The cleaning of floating waste in the DDBR should be done by boats, using waste collection equipment. The waste collected by boats should be taken to the shore, sorted and further recycled (e.g. plastics, wood, etc.) or sent to the landfill.
Investments in treatment and disposal facilities for construction and demolition waste
The entire DDBR territory
Large Infrastructure OP
Administrative Capacity OP
Waste producers and the authorities of the local public administration have the obligation to recycle 70% of the construction and demolition waste till 2020, in line with Article 11 of Directive 2008/98/EC and with the Romanian Law No. 211/2011. Currently, there is no center for the treatment or reuse of construction and demolition waste in Tulcea county; this type of waste is left at the landfills. In addition, only part of this waste is taken into account, the rest being deposited in unauthorized public areas. Public authorities at county level should ensure the treatment and disposal of construction and demolition waste by promoting recycling and reuse.
Developing programs for educating the population and
The entire DDBR territory
Administrative Capacity OP
A sustainable waste management practice cannot be achieved without behavior changes by local residents and tourists towards waste separation and recycling. Public education (including educational programs for
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Type of intervention
Location Source of
funds Justification
raising awareness on waste management
kids) and awareness-raising are essential to induce behavioral changes in local residents as well as visitors.
Recovering waste collected from households and economic agents
The entire DDBR territory
LI OP
Although in recent years new selective collection points have been established for PET and plastic or paper and cardboard waste (31 SMEs are authorized to this purpose), the recovery of recyclable materials is done to a very small extent. In 2013, were recovered only 511 tons of plastic, 204 tons of glass, 386 tons of cardboard, 12 tons of metal, 9 tons of wood. One reason for this situation is the lack of processing units of this type of waste at local level (the existing SMEs deal exclusively with the collecting, sorting, pressing, baling, chopping, shredding, transport, delivery of waste, etc.), which is why the sanitation operators in the area are forced to ship selectively collected waste to processors in other areas of the country.
Given that at county level is being implemented a project for the implementation of an integrated waste management system, worth over 100 million Lei, co-financed from SOP ENV 2007-2013, that will involve, inter alia, the construction of new plants for waste transfer and treatment, the purchase of specialized transport vehicles, the establishment of recyclable waste pre-collection points and the endowment with containers, a dramatic increase in the degree of selective collection is expected, which will also attract the development of private waste recovery enterprises.
As a vital center for biodiversity in Europe and a recognized world natural heritage area, the
government and local communities in the study area need to deliver concerted efforts to prevent
pollution and ensure environmental protection. In the long term, the study area should aim high
and strive to become a national role-model on sustainable waste management by: (i) achieving the
EU target of 50% recycling rate (to which Romania is committed); and (ii) demonstrating the
effective application of the principle of the 3Rs (waste reduction, re-use and recycling) in local
communities for sustainable waste management, resource-saving, and environmental protection.
The current system has a low waste collection rate, especially in the villages in the Danube Delta
Biosphere Reserve (DDBR), a low recycling rate and insufficient and costly waste collection and
transportation services between the Core Delta and the landfill in Tulcea. There is room for
improvement in the SWM in the Danube Delta Biosphere Reserve (DDBR) in order to protect the
world natural heritage adequately along with the local economic development. Particularly, the area
needs to: (i) significantly improve the waste collection rate, especially in the rural areas, through the
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provision of efficient waste collection and transportation services during the next EU budgetary
cycle; (ii) enhance waste separation at source by raising awareness and by changing the behavior of
residents and tourists; and (iii) minimize the amount of waste disposed of in landfills by promoting
waste recycling and by other waste treatment means.
The following interventions should be considered for the 2030 horizon:
- The collection of floating waste in river channels
- Developing programs for educating the population and raising awareness on waste
management
- Recovering waste collected from households and economic agents
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Healthcare
Several constraining factors that need a specific approach. The aim is to improve local health
outcomes, to increase equity, effectiveness, efficiency and the local health system's sustainability,
through the sector-specific objectives.
Several constraining factors that need a specific approach. Poor road conditions, the lack of
transportation and communication means, the unavailability of health services providers in remote
areas, and costs not covered under the insurance schemes may impede access to primary care
services for the rural population. To meet the health needs of rural communities more emphasis is
needed on comprehensive primary care (which would effectively incorporate health education,
preventive and curative services, and palliative care for all, regardless of age, sex or clinical
condition), a higher availability of labs and diagnostic capacity locally, and better coordination
between hospital and emergency care services. The sustainability of services is a major concern
which is determined by the limited availability of health care workers in the selected rural
settlements, by the inadequate physical infrastructure, and by the absence of incentives to motivate
effective and efficient performance. Social factors, the access to education, the living conditions and
the economic development – all contribute to difficulties in the health services delivery. Therefore,
the challenges in the provision of primary care can only be tackled through a multi-sectoral and
integrated approach, supported by relevant national and local policies.
To address these constraints and to strategically move towards meeting the sector-specific
objectives, three priority projects have been identified. The first project is improving the access to
primary health care (PHC) services by focusing on preventive measures, early detection and
treatment of chronic diseases. The second project matches these measures with physical
investments in the health infrastructure for primary, secondary and tertiary medical care, and the
related service delivery system. The public medical infrastructure available to patients in Tulcea
County is old and far from modern standards. The County Emergency Hospital operates in 4
buildings, one main block building for 20 medical specialties, and 3 buildings for these departments:
mental care, pneumology and TB, infectious diseases and dermatology, respectively. The
departments in the main building of the hospital are in a poor state and inadequately arranged, thus
hindering the functional circuit and the patients’ access pathways. This situation has a severe
negative impact on the quality of the provided healthcare services. It is not possible to use the
available resources in an integrated and efficient way. It is possible, however, to reorganize the
available infrastructure at unit level and at general level, in order to provide affordable
accommodation services (for instance, to mothers – while their children receive medical care or for
patients who live in remote areas). There is an important opportunity for creating such a shelter by
Sector-specific objectives
Improving the access to primary health care (PHC) services based on prevention and early detection and treatment of chronic diseases
Supporting the effective control of epidemics, early warning and coordinated response, and risk factors surveillance
Improving health infrastructure for primary, secondary and tertiary health care, and the related service delivery system adjusted to modern technologies
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reorganizing the pneumology and Tuberculosis center40 into a sheltering model (such as a residential
social center) allowing the access of the population from rural and isolated areas and providing
affordable accommodation services (for instance, to mothers while their children receive medical
care, or for the patients who live in remote areas).
At the same time it is recommended to create the necessary conditions (through legislation and
adequate infrastructure) for the development of ambulatory services in a network integrated with
the hospital departments (higher service volume – lower cost – quality), subsequently leading to
increased efficiency of services by reducing the duration and number of hospitalizations. Municipal
Hospital Măcin needs works for the rehabilitation of the building, medical equipment, furniture, and
a palliative center. The hospital has good capacity – 65 beds for continuous hospitalization and 20
beds for day-care. The ambulatory care within the hospital with 8 specialties was developed through
European Structural Funds. There is sufficient space for a palliative center to be established on the
top floor of the hospital building. Through these improvements, Măcin hospital can provide higher
level medical services.
Thirdly, supporting the effective control of epidemics, disease monitoring, early warning and
coordinated response are essential. Ensuring the availability of critical strategic epidemiologic
information is essential by strengthening the Public Health Directorate. Given the central role that
strategic epidemiologic information plays in the effective functioning of health systems, more
attention needs to be paid to building the local institutional capacity for generating and integrating
data and managing these systems. The decrease in resources for the health sector, both locally and
nationally, and the specific geographical risk for the emergence of infectious diseases (cholera, West
Nile virus, Boutonneuse fever, avian influenza) makes the strengthening of the Public Health
Department an important priority. The data estimating the risk of diseases, tracking vital statistics,
evaluating behavioral risk factors and other underlying determinants, monitoring and evaluating the
impact of health interventions, provides vital information and ensures that the investments in health
are cost-effective and that government policies that support health efforts are grounded in the best
available information. Studies and research about environmental risk factors, exposure and effects
are also needed.
Certain national legislative regulations need to be revised in order to make the health sector in
such areas function effectively. In order to ensure a proper planning of human resources, there is a
strong need to improve the quality and organizational capacity and accessibility of family medicine.
Such interventions could include contracts with resident physicians, fixed salaries for the medical
staff working in isolated areas, incentives for medical personnel using the telemedicine system, as
well as a system of financial incentives for primary care in areas considered unattractive by medical
professionals. Also, in order to create an appropriate mechanism to improve the ambulatory system
within hospitals, specific legislation is recommended allowing greater flexibility for contracting
services.
40
The Tuberculosis Center in Tulcea Emergency Hospital is highly inappropriate due to the high risk of contamination and also in contradiction with the aim of reducing hospitalization rates.
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Figure 22: The current situation and proposals to modernize the health system in Tulcea
Table 17. Healthcare – Type of intervention and Justification
Type of intervention Location41 Source of funds Justification
1. The rehabilitation of the health infrastructure and its endowment with modern equipment and vehicles and boats
The entire DDBR territory
Regional OP – Axis 8: Health and social infrastructure development
- To strengthen the capacity of the local public health surveillance system and the early warning and coordinated response. - To ensure the availability of critical strategic epidemiologic information - The preparedness and response to public health emergency situations, natural and man-made disasters, the detection and control of infectious disease outbreaks, and unusual clusters of non-infectious diseases (such as toxicity events) - In consistency with the National Health Strategy draft, with the recommendations of the World Bank in the 2011 Functional Review of the Health Sector and
41
The areas proposed for civil works are specified in the needs assessment report.
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Type of intervention Location41 Source of funds Justification
with the objectives of the WB Project for Health Reform
2. The rehabilitation/modernization of family medicine cabinets and their endowment, including providing houses for the doctors’ families in the Danube Delta localities
CA Rosetti, Letea, Ceatalchioi, Chilia Veche, Crișan, Mila 23, Partizani, Maliuc, Isaccea, Ceamurlia de Jos, Frecăței, Cataloi, Greci, Grindu, Mihai Bravu, Turda, M. Kogălniceanu, Rândunica, Sf. Gheorghe, Somova, Mineri, Văcăreni, Niculițel, Slava Rusă, Camena, Plopu, Sarinasuf, Valea Nucarilor, Nufăru, Mahmudia
MRDPA Regional OP – Axis 8: Health and social infrastructure development
To strengthen the quality of health services at primary care level
3. Modernization and purchase of equipment in order to organize a functional circuit at Tulcea Emergency Hospital (including the ambulatory department) as well as for the Măcin Hospital
Tulcea, Măcin Regional OP – Axis 8: Health and social infrastructure development
Investments to achieve integrated and functional facilities
The tuberculosis center within the Tulcea Emergency Hospital is being considered for transformation into a center for social housing (residential care) to provide accommodation, for example, to mothers while their children receive medical care, or for patients who live in isolated areas.
5. The creation of multifunctional centers, the rehabilitation of the closed buildings
Babadag Sulina Isaccea
Regional OP – Axis 8: Health and social infrastructure development
To enhance the needed services in a low cost way, by using existing assets
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Type of intervention Location41 Source of funds Justification
6. Ensuring the interoperability of information systems at the level of medical healthcare (telemedicine and e-health)
The entire DDBR territory
Competitiveness OP – Axis 2: Information and Communication Technology (ICT) for a competitive digital economy
To create communication facilities for the provision of service, as a response to the unavailability of human resources in isolated areas
7. Providing technical assistance to increase the profitability of the government/administration sector (hospital payment mechanism for stimulating public ambulatory services, family doctors and telemedicine systems)
Ministry Of Health
Administrative Capacity OP - Axis 1: Effective public administration and legal system - Axis 2: Accessible and transparent public administration and legal system HC OP – PA 4 – Social inclusion and poverty reduction
- The hospital payment mechanism needs to be adjusted in order to incentivize: the public ambulatory system, family doctors in remote areas and the use of telemedicine by medical staff - In consistency with the National Health Strategy draft, with the recommendations of the World Bank in the 2011 Functional Review of the Health Sector and with the objectives of the WB Project for Health Reform
8. Organizing information, education and communication campaigns on a healthy and hygienic environment
The entire DDBR territory
Administrative Capacity OP – Axes 1 and 2 HC OP – PA 4 – Social inclusion and poverty reduction
Improved public knowledge is needed on these subjects
9. The purchase of specific equipment to improve the capacity and the quality of the service provided by the Inspectorate for Emergency Situations
The entire DDBR territory
Regional OP – Axis 8: Health and social infrastructure development
The Delta area has special characteristics as far as emergency situations are concerned:
- many of the settlements are still exposed to the risk of flooding, such as the floods that occurred in 2010, which resulted in the breaking of one dam on the Chilia branch, or such as those which frequently afflict the Ceatalchioi area;
- the livestock farmers’ practice of setting the reeds on fire, made worse by the high wind speeds in the area, results in protected and inhabited areas being exposed to
120
Type of intervention Location41 Source of funds Justification
fire hazards;
- interventions in the area are made very difficult by the marshland and the lack of fast rescue boats;
- the increased number of tourists and accommodation units have led to a rise in calls for intervention, as a result of boats sinking, fires and all kinds of other accidents. The Inspectorate for Emergency Situations is poorly endowed. The intervention equipment is old (around 70% should have been already scrapped), some of it dating back to the '70s, and insufficient with regard to the number of requests. The greatest problems are posed by interventions on water, especially in the Danube Delta, given the lack of a fast river rescue boat for fire prevention and firefighting interventions. The existing craft is serviced by 32 workers and is over 15 years old. As such, response time is longer, the safety of the staff is jeopardized, and maintenance costs are very high.
On the other hand, the premises which the county departments and brigades have at their disposal are insufficient for the increasing workload of the inspectorate. Last but not least, there is still no center at county level for the coordination of interventions with the other institutions concerned (the County Ambulance Service, the County Police Inspectorate, etc.) and no center to train the population in emergency situations, emphasizing the prevention component.
The implementation of the
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Type of intervention Location41 Source of funds Justification
project is crucial for the sustainable development of the Danube Delta area, as it aims to lower the risk of property damage and loss of life – for locals and tourists, as well as the risk of damage to the ecosystem as a result of natural hazards and man-made incidents.
The following interventions should be considered for the 2030 horizon:
- The rehabilitation of the health infrastructure and its endowment with modern
equipment and vehicles and boats
- Ensuring the interoperability of information systems at the level of medical healthcare
(telemedicine and e-health)
- Organizing information, education and communication campaigns on a healthy and
hygienic environment
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Education
A sector-specific objective for the Danube Delta, in accordance with the national educational
strategies, is getting a higher quality and efficiency of education for all and providing better skills for
residents to support local inclusive smart growth and the development of a green economy.
Moreover, in order to better address the demographic and migration challenges specific to the area,
it is recommended to improve the cross-sectoral coordination process. The rationale is to contribute
to Romania’s inclusive smart growth by reducing the number of people at risk of unemployment,
poverty and social exclusion by increasing the participation in lifelong learning and improving the
relevance of the education and vocational training systems for the labor market.
Six sector-specific priorities are aligned with the national priorities established for Romania. They
support the two overall strategic objectives for the Danube Delta Region:
1. increasing participation in lifelong learning;
2. creating an education and training network for students living in remote areas;
3. supporting Vocational education and training (VET) schools;
4. increasing access to early childhood education and care;
5. reducing early school leaving;
6. ensuring better performance of the education system in addressing labor market needs.
The first objective for lifelong learning is a clear priority as this is a region transitioning from
dependence on raw natural resources to higher value-added activities. The second object is to
create a network of students to solve educational constraints related to poor access and low
population density in the center of the Delta. Percentually speaking, there are fewer certified
teachers in the Delta (67%) compared to the rest of the county (89%). Several communes have
closed their schools because of low student numbers and high operating costs, and transportation to
other schools has become a challenge. VET is a national priority as well as very relevant to the
sectors being strategically supported under the Strategy. There is an opportunity to improve the
facilities for early childhood education and care by converting excess kindergarten facilities, which
have become available due to a decline in the number of children.
Early school leaving (ESL) has significant social and economic implications. ESL is a contributing factor
to involuntary social exclusion later in life. Predictions of future skills demand in Europe suggest that
only 1 in 10 jobs will be within reach of an early school leaver. Young people who leave school
prematurely are more likely to become unemployed, or to earn lower incomes if they are employed.
This generates high public and social costs in the form of health care, justice and social benefit
payments, as well as lower incomes and reduced tax revenues. Last but not least, stronger
connections between education and labor market needs are essential nationwide but even more so
for the Danube Delta Region.
Sector-specific objectives
Providing lifelong learning opportunities to create labor skills necessary for the
21st century economy
Supporting secondary and vocational education that prepare students for the
global knowledge economy and for the specificities of the local economy
Increasing the quality of the primary education and early-education systems
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Table 18. Education: Type of intervention and Justification
Type of Intervention
Location Source of funds Justification
1. The provision of relevant, accessible and incentivized lifelong learning (LLL) programs in tourism, agriculture and fisheries, in Community Centers for Permanent Learning
Beștepe, Ciucurova, Jijila, Luncăvița, Peceneaga, Ceatalchioi, Grindu, Jurilovca, Nufăru, Topolog
Human Capital OP PA 6 – Education and skills National Rural Development Program (NRDP)42
The intervention meets the needs specified in section IV.3.3. of the Needs Assessment Report and supports the sector-specific objective 1. Justification: This intervention contributes to Romania’s inclusive smart growth by reducing the number of people at risk of unemployment, poverty and social exclusion and increasing the participation in lifelong learning and improving the relevance of the education and vocational training systems for the labor market. The LLL strategy focuses on disadvantaged or underrepresented groups (e.g. the unemployed, early school leavers, Roma and other minorities, women, adults over 40 with low qualifications, young people in transition from school to work, older workers, and the disabled) who will be the main beneficiaries of this program. Besides meeting the national goals, this intervention is also aimed at supporting the transition that this area is undergoing from an economy based on extraction to an economy based on services. Activities will include recognizing the qualifications previously obtained, certified training and VET courses, enhanced curriculum, acquiring life and transversal skills, subsidies for traineeships and job placement, language trainings in the minority languages43.
2. Creating an Education and Training Network to ensure the access to quality primary and lower secondary education
Communities that are isolated or communities with less than 2,000 inhabitants plus Tulcea city as the
Competitiveness OP Axis 2 – ICT for a competitive digital economy Human Capital OP Axis 6 – Education and skills
This intervention meets the needs specified in section IV.3.3 of the Needs Assessment Report and supports sector-specific objectives 2 and 3. Justification: The education sector in the study area, particularly in the Core Delta, is constrained by poor accessibility and low population density. The education sector faces significant challenges in terms of
42
The PNDR provides support for short training courses in agriculture and agri-food (for example, initiation, training), targeting farmers, young farmers, processors in the agri-food industry, farmers with agri-environmental and climate commitments and other topics in a training program.
43 For children, minority language programs are conducted nationally.
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Type of Intervention
Location Source of funds Justification
center of the network44.
Regional Operational Program – Axis 10 – Improving the educational infrastructure
handling the inaccessibility and a declining student population. There are proportionally fewer certified teachers in the Delta (67%) compared to the rest of the county (89%). Several communes have closed their schools because of low student numbers and high operating costs, and transportation to other schools has become a challenge. Moreover, schools struggle with the lack of sanitation, heating, and (in some locations) safe water.
3. The creation of vocational and technical schools that are relevant, attractive and inclusive
Tulcea County
Human Capital OP PA 6 – Education and skills Regional Operational Program – PA 10 – Improving the educational infrastructure National Rural Development Program (NRDP)
This intervention meets the needs specified in section IV.3.3 of the Needs Assessment Report and supports the sector-specific objective 2. Justification: Vocational and ethnic education is a national development priority. It addresses both secondary education (technology development) and post-secondary education to create the skills and abilities to provide better access to employment opportunities and represents a starting point for further learning. It is also essential that VET programs build the knowledge and skills that are needed for the local economy and that correspond to the international standards of natural tourism and recreational fishing. At national level, MoNE doubled the number of places available for VET schools for the 2014-2015 school year. The main challenge is to ensure a quality and relevant VET, with a clear and direct connection either to the workforce or to further education and training. Viable alternatives will be identified for children and young people passing the baccalaureate with very low grades or whose academic results are not good enough to be accepted in the high schools they prefer. Activities will include counseling services, support of partnership with companies through apprenticeships and internships, training and incentives mechanisms and provision of spaces for workshops in VET schools.
44
The national selection phase for e-learning solutions and related educational infrastructure is under preparation at the time of writing this document. The specific communities will be suggested in the ITI proposal when there is clarity regarding the national process.
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Type of Intervention
Location Source of funds Justification
4. The rehabilitation and endowment of kindergartens and nurseries
The entire DDBR territory
Human Capital OP Axis 6 - Education and skills Regional Operational Program – Axis 10 – Improving the educational infrastructure National Rural Development Program (NRDP)45
This intervention meets the needs specified in section IV.3.3 of the Needs Assessment Report and supports sector-specific objective 3. Justification: An important opportunity is offered by the availability of kindergartens to be used and adapted as nursery areas due to low birth rates. A national priority is the enrolment in and completion of preschool education (3 to 5 years of age) by all children and extending the provision of early care and early education for children under three years of age. Studies show that access to good quality education at an early age facilitates the development of key competences, and that good quality ECEC increases educational achievement and reduces the risk of ESL at a later stage. Activities will include appropriate support for enrolment and transposing the purposes in ECEC, parental education and ensuring the availability of qualified teachers (child care educator) in all geographical locations through financial incentives during project implementation.
5. The development of programs such as after school and Second Chance
The entire DDBR territory
OP Human Capital Axis 6 – Education and skills
This intervention meets the needs specified in section IV.3.3 of the Needs Assessment Report and supports sector-specific objective 2.
Justification: Early school leaving has significant social and economic implications. ESL is a contributing factor to involuntary social exclusion later in life. Predictions of future skills demand in Europe suggest that only 1 in 10 jobs will be within reach of an early school leaver. Young people who leave school prematurely are more likely to become unemployed, or to earn lower incomes if they are employed. This generates social costs, lower incomes and reduced economic growth, as well as reduced tax revenues, and higher costs of public services such as health care, criminal justice, and social benefit payments. The target groups of this program are children aged 11-17 but also adults, especially those
45
The PNDR provides for support for the establishment and modernization (including equipment) of kindergartens, only to those outside the school premises, in the countryside.
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Type of Intervention
Location Source of funds Justification
from poor economic backgrounds, rural areas, and from Roma and other minority groups. Activities will include improving the conditions and quality of schools and after school programs offered to students at risk of early school leaving, improving the quality of Second Chance programs, materials and teacher training.
6. Creating partnerships between employers, training and education providers & research institutions
The entire DDBR territory
Human Capital OP Axis 6 – Education and skills
This intervention meets the needs specified in section IV.3.3 of the Needs Assessment Report and supports sector-specific objective 1. Justification: The strategic vision for lifelong learning in Romania is to provide all individuals, throughout their lives, with opportunities to participate fully in the economic, social and civic life, and to enable them to fulfill their personal potential. Greater collaboration is critical for the achievement of increased access and improved quality and relevance of LLL. The activities envisaged include coordination, financing, and regulation to help overcome the constraints to LLL -- poor information, weak incentives and low capacity -- and to create effective partnerships between all relevant stakeholders and a change in attitude towards LLL. The partnerships between training providers and firms include contracts for internships and job-specific skills. The measures needed for the practical implementation and expansion of apprenticeships could include, for example, financial incentives (such as tax reductions) for employers to engage in these partnerships.
The following interventions should be considered for the 2030 horizon:
- The provision of relevant, accessible and incentivized lifelong learning (LLL) programs in
tourism, agriculture and fisheries, in Community Centers for Permanent Learning
- The development of programs such as after school and Second Chance - Creating partnerships between employers, training and education providers & research
institutions
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Social Inclusion and Protection
Social inclusion is closely linked to interventions in the education and health sectors. An integrated
approach in solving the problems specific to these fields was used. The integration is reflected in
addressing the multiple dimensions of exclusion as well as including solutions for the access to the
education and health sectors.
The following interventions are envisioned under the strategic principles of the Strategy:
1. Empowerment of inhabitants: supporting (awareness and information) poor and
marginalized people's rights and the access to resources, supporting participatory and accountable
knowledge and the advisory process, enhancing participation in markets, supporting poor people's
participation in policy and governance processes; institute grievance redress mechanisms; LLL for
vulnerable groups.
2. More transparent, accountable and inclusive institutions: client oriented activities coupled
with information actions in education, health and social services provision.
3. Making services affordable by enhancing efficiency: the integrated approach in providing
basic social services (education, healthcare and social assistance) is strongly recommended. The
provision of prevention services is less expensive than the provision of protection services
(education, healthcare, social protection) and with more sustainable results on well-being.
4. Affordability through income generation: tailored services for enhancing employability,
particularly for the poor and disadvantaged and for low-skill jobs.
5. Territorial integration: providing subsidies for the poor living in remote areas in order to
ensure access to basic services.
The identified priority interventions in terms of expected impact to these strategic objectives
are:
Developing early childhood (0-6 years) institutional infrastructure in communities with high
share of Roma and other vulnerable groups
Scaling up school mediators in all schools with high percentage of Roma and other minorities
and vulnerable groups
Implementing community grants for educational interventions
Facilitating the regularization of property rights (complete cadaster system)
In line with the proposed educational priorities, the educational interventions targeted at
communities with a high percentage of Roma population and other vulnerable groups focus on
providing the needed infrastructure and also in extending the successful type of “soft” support such
as mediators and grant schemes. Property rights are another priority area for intervention due to
their impact on other aspects of life of the Roma and other vulnerable populations, such as the
access to services and loans.
Sector-specific objectives
Reducing labor related and human capital disparities among Roma people
by providing improved integrated services in all dimensions and aspects of
exclusion (education, health, housing, employment)
Preserving the cultural heritage of the ethnic minorities in the study area.
Improving social outcomes by making social protection programs in more
relevant and effective in the study area
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Further identification of vulnerable groups is envisioned as part of the next steps in the Danube
Delta project. Once the specific profile and needs of these vulnerable groups are better understood,
specific interventions will be suggested in order to make the national social protection policies more
relevant and effective.
Table 19. Social Inclusion and Protection: Type of intervention and Justification46
46
The identification of other vulnerable categories is expected in more advanced stages of the work.
Type of Intervention Location Source of funds Justification
Developing early childhood (0-6 years) institutional infrastructure in communities with high share of Roma and other vulnerable groups
Areas with high share of Roma and other vulnerable groups in the entire DDBR territory
ROP Axis 10 – Improving the educational infrastructure HC OP: Axis 4 – Social inclusion and combating poverty
The intervention meets the needs specified in section IV.5.3. of the Needs Assessment Report and complies with all sector-specific objectives. Justification: This is a national priority. Physical investments will be combined with other support types.
Scaling up school mediators in all schools with high percentage of Roma and other vulnerable groups
Areas with high share of Roma and other vulnerable groups in the entire DDBR territory
HC OP: Axis 4 – Social inclusion and combating poverty
The intervention meets the needs specified in section IV.5.3. of the Needs Assessment Report and complies with all sector-specific objectives. Justification: School mediators have been found to be successful.
Implementing community grants for educational intervention
Areas with high share of Roma and other vulnerable groups in the entire DDBR territory
HC OP: Axis 4 – Social inclusion and combating poverty
The intervention meets the needs specified in section IV.5.3. of the Needs Assessment Report and complies with all sector-specific objectives. Justification: Conditional cash transfers have had a lot of success around the world.
Creating jobs for vulnerable groups by promoting social economy development in relation with the priority development sectors of DDBR
The entire DDBR territory
HC OP: Axis 4 – Social inclusion and combating poverty
The project aims to increase
quality employment
opportunities in the fisheries
sector for vulnerable groups in
the DDBR territory. At the same
time, it supports the
diversification of agricultural
and non-agricultural activities,
encouraging the active
involvement of local
communities, as well as the
social and labor market
integration of vulnerable
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The following interventions should be considered for the 2030 horizon:
groups.
The project’s goal is the
development of social economy
structures, to support the labor
market integration of people
from vulnerable groups. The
development of the social
economy will help creating new
jobs and foster local services.
The actions will aim at providing
the necessary support for the
establishment of social insertion
enterprises, and at promoting
social economy. However, social
entrepreneurs, both from start-
ups and existing entities could
benefit from counseling /
mentoring and training in the
social field.
An integrated intervention will be carried out in the whole territory and with the involvement of all local stakeholders.
The expansion, rehabilitation, modernization and equipping of the social services infrastructure
The entire DDBR territory
ROP Axis 8 Health and social infrastructure development NRDP
However, the derelict state of the buildings and the poor endowment of some social centers only allow for a relatively limited number of services provided to the beneficiaries (e.g. occupational therapy services for people with disabilities), while the comfort of the institutionalized beneficiaries is reduced due to the shortage of areas for relaxation and leisure.
Facilitating the regularization of property rights
Areas with high share of Roma and other vulnerable groups in the entire DDBR territory
Regional OP: Axis 11 – Geographical extension of properties and land registration (funds other than through ITI)
The intervention meets the needs specified in section IV.5.3. of the Needs Assessment Report and complies with all sector-specific objectives. Justification: A necessary condition for many other interventions
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- Scaling up school mediators in all schools with high percentage of Roma and other
vulnerable groups
- Implementing community grants for educational intervention
- The expansion, rehabilitation, modernization and equipping of the social services
infrastructure
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Pillar V: Promoting Efficiency, Affordability and Sustainability
This section deals with interventions that address the efficient and sustainable implementation of
the projects and programs suggested under the Strategy. The Needs Assessment determined that in
the DD Region, the demographic and climate conditions impede the investments for economies of
scale and services and therefore more innovative approaches to service delivery need to be
anticipated, perhaps by making better use of the internet (Pillar III). The cost of services has already
reached the affordability limit of several households in the study area, and the fiscal space of the
local authorities is equally tight, so that further burdening them with operations and maintenance
(O&M) costs that cannot be recovered from the user is not a viable option. The Needs Assessment
further argued that the lack of financial means of the households is best addressed by means-tested
subsidies, managed under the central government's social protection programs, and – rarely – is it
advisable to administer indiscriminate area-based subsidies. Facilitating opportunities (Pillar II) for
local residents will be the best medicine to address affordability constraints. All proposed
investments need to tailored to be relevant, affordable and sustainable for the community.
Administrative Capacity and Program Management
The Danube Delta Region has high needs for reforms and administrative capacity development
because of the particular environmental and economic challenges. Decision making in the DD region
needs to be evidence-based especially in relation to the management of the valuable environmental
assets. Strategic planning and budgeting for environmental management and tourism development
is particularly challenged because of the many layers of government (TCC, Constanța County Council,
DDBRA, and LAUs) and territorial units. Furthermore, the management of the biodiversity and
ecosystem resources relies heavily on command-and-control mechanisms rather than on more
participatory and ownership-driven decision-making. The administrative burdens for businesses and
citizens are particularly high in this area driven by DDBRA permits. The entrance fees for the use of
the DDBR also incur the high transaction cost of collection and are not optimized. Monitoring and
enforcement in DDBRA also carries high costs and inefficiencies and needs to move towards benefit-
sharing with the resource users. Public services are under-supplied and are particularly challenging
to provide in the DD region due to economies of scale and accessibility, as discussed in the Needs
Assessment Report. Public services need to be managed in innovative ways and utilize ICT
approaches for education and health. The current utility subsidies need to be reformed as well, as
argued in the Needs Assessment. Similar regulation reforms are needed in other sectors to address
the needs of areas such as the Danube Delta. Human resources management also faces particular
needs in terms of attracting and retaining talent, especially in the health and education sectors.
Technical Assistance (TA) for administrative capacity improvement. The main institutional
Sector-specific objectives
Providing efficient and cost-effective public services
Improving evidence-based strategic and budgetary planning across all
levels of governance in the DD region in order to support environmental
and economic objectives
Increasing participatory decision-making in synergy with the environmental
and economic objectives
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beneficiaries are the Tulcea County Council, almost forty (40) other local authorities (including
Tulcea City and four towns), and the Danube Delta Biosphere Reserve Administration (DDBRA) and
other national government entities located in the ITI area. In addition, various beneficiaries are
expected from the private sector. Most of these beneficiaries have limited experience and capacity
for implementing the types and scale of projects envisaged under the ITI program, and the need for
subsequent operation and maintenance (O&M). Limited budget resources and challenges in
retaining staff in remote areas (e.g. in the health and education sectors) has put stress on the
administrative systems. The need for effective coordination of initiatives and interventions will
present additional administrative demands on the beneficiaries, and some new organizations are
proposed to be established (e.g. a destination management organization for the tourism sector).
Managing an environmental asset such as the DDBR requires particular skills and sensitivities, for
DDBRA and other environmental entities, the local authorities, as well as the communities at large.
Hence, there are significant needs to develop efficient, transparent, and accessible government
entities. This includes: (a) improving the general project management capacity, both within the
private and public sectors, including the preparation and implementation of financing projects (e.g.
the development of guidelines for public procurement and control systems, recruitment and
management of staff and consultants, technical and economic documentation skills, arranging
partnerships, and the integration of ITI-funded initiatives with other activities of the beneficiaries);
(b) fostering an efficient implementation system (beneficiary coordination mechanisms and
management and control systems), including contracting, financial management, monitoring and
control implementation; (c) providing specific support measures related to the investments under
each Operational Programme (OP), particularly for the public sector (by function, and as per their
mandates). For example, it enables a competitive local business environment (including tourism),
education and other public services, and ensures the effective engagement of local stakeholders in
the management of ecologically reconstructed areas; (d) enhancing facilities, approaches and tools
for easy access by the public to public information and services; and (e) helping foster a strong sense
of ownership over the processes and outcomes of interventions among the beneficiaries, preparing
them for the related O&M and future continuous improvements. The capacity is anticipated to be
strengthened through: (i) advisory services (for operational reviews, development of policies and
procedures, etc.); (ii) training and coaching programs, with impact evaluations; (iii) response facilities
and web-site development for public information and dialogue; and (iv) office facilities, vehicles and
equipment.
Technical Assistance (TA) for Program Management. In addition to technical assistance (TA) needs
defined for each sector, and related to the general administrative capacity, the recently established
Inter-Community Development Association (IDA) and the ITI beneficiaries will need extensive TA to
prepare and implement the ITI-program in a timely and efficient manner, ensure efficient use of
financial and economic resources, and disseminate related information. The activities for the
training and coaching of the IDA staff and of local beneficiaries will include project preparation,
project management, public procurement, contract management, financial management,
partnership arrangements and management (with the private sector as well as with civil society
organizations), project coordination, and project monitoring and evaluation. Special attention will be
paid to the larger projects (e.g. the rehabilitation of three county roads); the application of
innovative financial instruments (e.g. for SME promotion; and community engagement in
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environmental management); and coordination mechanisms to ensure the effective implementation
of the integrated territorial strategy. Advisory services will be needed for feasibility studies,
organizational development, help-desk and web-site development, public information and
promotion activities, arranging study tours, and impact evaluations. The IDA will also need office
facilities, vehicles and equipment.
Responding effectively to the defined needs will be challenging for the authorities. The local
authorities in the study area have limited administrative and financial capacity for the
implementation of new and rehabilitated investments, and for their future operations. The
continued population decline and ageing in the study area will reduce tax revenues and economies
in service provision, adding further stress on the authorities. In addition, the ability of the residents
to pay for improved public services is weak. This raises questions about the government's future
subsidy policy. The future management of the Delta will also depend upon the ability of the DDBRA
to monitor and enforce regulations. Therefore, a need for consolidation and support through
technical assistance is emphasized in the report, assuming that the entity (entities) is (are) in charge
of the coordination and cooperation with the national authorities on the overall program
implementation.
Table 20. Administrative Capacity and Program Management – Type of Intervention and Justification
Type of Intervention Location Source of
funds Justification
The provision of Technical Assistance (TA) for administrative capacity improvement
The entire DDBR
territory
TA OP Administrative
Capacity OP
The main institutional beneficiaries are the Tulcea County Council, almost forty (40) other local authorities (including Tulcea City and four towns), and the Danube Delta Biosphere Reserve Administration (DDBRA) and other national government entities located in the ITI area. These authorities have a limited administrative and financial capacity to prepare and implement new and improved investments, and to ensure effective future operations and maintenance. Substantial capacity and support building through technical assistance is needed to develop efficient, transparent, and accessible government entities. Some administrative functions include but are not limited to updating/completing various territorial management instruments, such as town/village plans, urban/village data banks, cadaster and land book, etc.
Management Plan and Operation Rules for the Danube Delta Biosphere Reserve
The entire DDBR territory
Administrative Capacity OP, Axis 1 (1.1.)
The Management Plan and Operation Rules for the Danube Delta Biosphere Reserve implies the drawing up of this programming document established by Law 82/1993 on the establishment of the Danube Delta Biosphere Reserve and subsequent
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Type of Intervention Location Source of
funds Justification
amendments and aims to adapt the management of the DDRB to the EU Community and international rules on the management of protected natural areas in general and those with multiple designation status, in particular: biosphere reserves (MAB Programme – UNESCO, wetlands of international importance – Ramsar), areas of UNESCO Natural and Cultural World Heritage, NATURA 2000 sites. It includes mechanisms for the meaningful participation of local communities and other important decision makers in key aspects of DDBR management, including setting goals, developing plans for area and natural resources management, implementation and monitoring. Adopting a policy and an appropriate legislation in relation to the governance structures of the DDBR and with regard to the residents' access to natural resources, which is crucial to establishing a more cooperative and functional relationship between the DDBRA and local communities.
Implementation and development of a risk management system in the Danube Delta Biosphere Reserve
The entire DDBR territory
Administrative Capacity OP, Axis 1 (1.1.)
The need for an informatics system
dedicated to risk management is justified
not only by the DDBR’s importance at the
national and international level, but also by
the positive impact that such a system
would have on the decision-making process
of the DDBRA, supporting the DDBRA in
estimating the impact, the probability
degree of hydro-meteorological
phenomena with high risk of affecting the
natural heritage.
With a clearer picture in what concerns the impact that the transported sediments and the morphological changes in the area have on natural heritage, DDBRA will benefit from enhanced analisys functionalities, aggregation, and display, as well as from forecasting proposed actions and measures leading to efficient decision making.
Revising the regulations for the improvement of the design of household
Central government
Administrative Capacity OP, Axis 1 (1.1.)
This intervention meets the needs specified in section V.1.2.1 of the Needs Assessment Report and supports sector-specific objective 1.
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Type of Intervention Location Source of
funds Justification
subsidies to improve the affordability of services, and a more efficient targeting and use of financial and natural resources.
Justification: Current subsidy policy is inefficient, not targeted towards the poor and can generate perverse incentives of resource use. Half (50%) of the total utility bill in the Core Delta (including water, electricity and heating, where applicable) is being subsidized irrespective of the income situation of the household. This has generated, for example in the case of water, wastage in the form of piped water being used for irrigation, for which non-treated water sources could have been a more cost-effective alternative. Given the extent of the planned improvements to the services in the area, it will be critical to assure that sufficient user fees can be maintained and that these fees are affordable to its residents. Priority Activities - The review of the existing subsidy mechanisms applied at central government and county level - The performance of existing subsidy mechanisms, including efficient targeting (errors of inclusion and exclusion) - The review of the administrative efficiency of existing subsidies - The recommendation based on institutional origin and means tested criteria for subsidy administration - The preparation of a comprehensive feasibility study including a recovery strategy for the cost of services - Public consultations on tariff reform The synergies will ensure the financial sustainability of (i) water and sewage investments; (ii) waste collection and disposal; (iii) electricity and internet provision; and (iv) transport services.
DDBRA Institutional reforms, see section I. Biodiversity and Ecosystem Management
DDBRA
Administrative Capacity OP, Axis 1 (1.1.)
See section I. Biodiversity and Ecosystem Management
Climate change interventions, see section I. Climate Change
See section I. Climate Change
Administrative
Capacity OP See section I. Climate Change
Institutionalization See section Administrative See section II. Tourism
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Type of Intervention Location Source of
funds Justification
of a Danube Delta Destination Management Organization (DMO), see section II. Tourism
II. Tourism Capacity OP
Reforms to increase the cost-effectiveness of the sector governance, see section IV. Healthcare
See section IV.
Healthcare
Administrative Capacity OP,
Axis 1 (1.1 and 1.2)
See section IV. Healthcare
Improving strategic planning and budgeting based on the development of management systems and tools to support economic and environmental goals
The entire DDBR
territory
Administrative Capacity OP, Axis 2 (2.1.)
Improving the decision-making process and
the efficiency of public spending at all
levels represents one of the development
needs identified in the Partnership
Agreement 2014-2020. At the same time,
“Increasing local government capacity to
formulate, sustain and implement local
public policies” and “Development,
introduction of, and support for the use of
management, monitoring, and evaluation
systems and tools, for increased
performance of institutional and public
services and for the change of
organizational culture at all levels”
represent priorities proposed for funding
under the Partnership Agreement 2014-
2020.
The same document establishes the main
transversal deficiencies affecting public
administration: the existence of
“inadequate strategic planning systems
within public institutions, leading to poor
prioritization” or “weak institutional
capacity for policy coordination,
manifested through unclear mechanisms
for monitoring and evaluating the
implemented policies focused on rules and
procedures, rather than on results and
performance”.
Finally, by ensuring public access to public
administration performance monitoring
tools, the project will contribute to
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Type of Intervention Location Source of
funds Justification
achieving the specific objective 2.2. ACOP
Increased transparency, ethics, and
integrity within public authorities and
institutions.
An integrated intervention will be carried out in the whole territory and involving all local public administrations.
Increasing transparency in public administration through developing skills and communication tools in public institutions
The entire DDBR
territory
Administrative Capacity OP, Axis 2 (2.2.)
For the development of a modern, efficient,
and transparent public administration,
which is open to citizens and businesses,
information technology and
communications have an important role,
which is to substantiate the technical
solution relating to the acquisition,
processing, and storage, as appropriate, of
the data that are relevant to citizens /
business environment in specific matters.
Low levels of transparency, consultation,
and involvement of citizens / civil society in
the decision-making that affects them
directly lead to both a mismatch between
their real needs and the priorities of the
administration at a certain time and a
negative image of the administration in the
eyes of the citizens.
The overall objective of the action:
developing and implementing systems and
tools, introduction / extension of the use of
mechanisms / tools / procedures for local
decision-making and further development
of the skills of the personnel working within
public authorities and institutions.
An integrated intervention will be carried out in the whole territory with the involvement of all local stakeholders.
The provision of Technical Assistance (TA) for program management
The entire DDBR
territory TA OP
Significant capacity building and financial support is also required for the entity (entities) to be in charge of the coordination of program implementation, and the related liaisons with the national authorities. The recently established Inter-Community Development Association (IDA) and the ITI beneficiaries will need extensive TA to prepare and implement projects in a
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Type of Intervention Location Source of
funds Justification
timely and efficient manner, to ensure the efficient use of financial and economic resources, and to disseminate the related information, all for the effective implementation of the integrated territorial approach. The IDA will also need office facilities, vehicles and equipment. Capacity building for project administration with regard to drafting technical and other documents; procurement; accounting; environmental assessment; construction supervision; and other project management functions will be necessary.
Actions intended to ensure the coordination between the public institutions dealing with the conservation of biodiversity and the ecological reconstruction of the Danube Delta
The entire DDBR
territory TA OP
The institutional system for the administration of the Danube Delta is extremely complex, both vertically and horizontally, through its particular status. Most of these, located at different levels of government, have responsibilities in environment and biodiversity issues. In this context, communication and coordination between different institutional actors is a big challenge and a risk for the protection of the Delta’s natural heritage. Despite some decentralization measures, the central government remains vital for the administration of the Delta; five ministries have responsibilities in the area, but there is no central coordination mechanism for the issues of the Danube, which cannot be compensated by the local cooperation between their various territorial structures. Also, between the organizations of the central government and those of the county/local government there are several efficiency and legitimacy gaps, the county/local authorities being forced to implement a series of central policies, often without being involved in their drafting, with extremely low administrative capacity, particularly in terms of financial and human resources. In addition, in many cases, different institutional actors have different interests.
The development and implementation of online services
The entire DDBR
territory AC OP
Currently, about 50% of the people in the DD ITI area have access to the broadband network (through different technologies such as Wimax, xDSL, FTTP, etc.). However, there are communities lacking the
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Type of Intervention Location Source of
funds Justification
necessary infrastructure for this purpose: Baia, Beștepe, C.A. Rosetti, Ceatalchioi, Chilia Veche, Crișan, Frecăței, Jijila, Jurilovca, Luncavița, Maliuc, Mihail Kogălniceanu, Nufăru, Pardina, Sarichioi, Smârdan, Valea Nucarilor, Văcăreni, etc. There are investments for the expansion of the broadband infrastructure through the project RO-NET, in: Baia, Ceatalchioi, Crișan, Frecăței, Jurilovca, Maliuc, Mihai Bravu, Mihail Kogălniceanu, Sarichioi and Smârdan. Also, under the strategy, additional investments are envisaged for the rest of the localities in the current programming period. Although the number of citizens using the Internet is increasing, their access to online public services is still very limited. In 2015, only 5 municipalities provide online facilities for the payment of municipal taxes (Tulcea, Isaccea, Frecăței, Luncavița, Niculițel), while others do not even have their own website (C.A. Rosetti, Maliuc, Sfântu Gheorghe, etc.). In addition, many existing websites have not been updated in recent years and there is no integrated system for information exchange between various local authorities.
The following interventions should be considered for the 2030 horizon:
- The provision of Technical Assistance (TA) for administrative capacity improvement
- The provision of Technical Assistance (TA) for program management
- Actions intended to ensure the coordination between the public institutions dealing
with the conservation of biodiversity and the ecological reconstruction of the Danube
Delta - The development and implementation of online services
Implementation of the agreements and the M&E mechanism
4.1. Strategy Implementation Arrangements According to the Protocol signed by the Ministry of European Funds, the Ministry of Regional
Development and Public Administration, the Ministry of Agriculture and Rural Development, and the
DD ITI Inter-Community Development Association, the four entities share responsibilities for the
implementation of Danube Delta Integrated Sustainable Development Strategy (DDIS), as follows:
140
(1) MRDPA is the national authority responsible for formulating and monitoring the
implementation of the DDIS, and it is also the Management Authority for the operational
programmes on Administrative Capacity and for the European Territorial Cooperation Programmes;
(2) MEF is the national coordinator of European Structural and Investment Funds 2014-2020,
as well as being the Management Authority for the OPs for Technical Assistance, Large
Infrastructure, Human Capital, and Competitiveness;
(3) MARD is the national authority responsible for coordinating the implementation of the
Common Agricultural Policy and of the Common Fisheries Policy, as well as being the Management
Authority for the National Rural Development Program (NRDP) and the Fisheries and Maritime
Affairs OP;
(4) IDA – DD ITI will coordinate the implementation of the Action Plan of the DDIS.
The coordination of the activities of the three ministries will be performed through the Functional
Working Group (FWG) for the Danube Delta ITI, with representatives from each ministry. The FWG
Secretariat will be established by the Department for Analysis, Programming and Evaluation at the
MEF. These institutional arrangements are shown in
141
Figure 23.
The DD ITI IDA is a structure representative of the local authorities in the Danube Delta Region (the
ITI area). According to its statute, it supports the local beneficiaries – the local public
administrations, the public and private institutions, the members or non-members – in
implementing the projects strongly related to the DDIS approved in the Action Plan. Its direct
responsibilities in relation to project preparation and implementation are described in Table 21.
The local beneficiaries – the local public administrations, the public and private institutions – are the
responsible parties for the strategy implementation. They will need to establish Project
Implementation Units (PIU) within their organizations responsible for the coordination and
implementation of project activities. The project management may be contracted out to specialized
companies through applicable procurement procedures.
142
Figure 23:Institutional Agreements
143
Table 21: ITI IDA responsibilities
Projects
Preparation:
The ITI IDA supports the local beneficiaries (LAs, private and public
institutions, members and non-members) in developing project applications,
according to the approved Action Plan:
- Extension: It organizes meetings with the DD ITI IDA staff to present and
explain to the possible local Beneficiaries the content and eligibility
criteria in the Applicant Guide for each OP for the ITI projects.
- Capacity building: It develops and strengthens the project capacities in
the ITI area by training the staff of the county and local councils
(cities/towns and communes).
- Monitoring: It creates and distributes to all Beneficiaries the work plan
for drafting the ITI project indicating the main milestones to be
respected.
- Management: It monitors the performance of each Beneficiary during
the drafting period, and acts to avoid delays and supports the
beneficiaries on demand.
- Helpdesk: It provides helpdesk services to the Beneficiaries (information
on necessary documents, procedures for public procurement, advice,
etc.).
The ITI IDA participates in the Technical Committee of the local public
administration units. These committees are responsible for the approval of
technical studies and project performance indicators.
The ITI IDA receives the project applications from the Beneficiaries as per the
work plan.
The ITI IDA performs the administrative eligibility review of the ITI project
proposals, applying the relevant procedures through formal approval of the
project, and sends the corresponding report to the ITI Working
Group/Secretariat at the MAs.
The ITI IDA organizes public meetings during the project formulation stage to
ensure the transparency of its activities, keeping open all channels of
communication regarding the ITI subject.
In compliance with its duties, the ITI IDA offers Beneficiaries clarifications on
the technical or financial evaluation process performed by the MA with
external evaluators.
The ITI IDA supports the Beneficiaries in submitting a project from the
reserve list, if the initial application has failed (it was not submitted or
rejected).
Projects
Preparation:
The ITI IDA provides guidance to the Beneficiaries in formulating technical
specifications, ToRs, etc. for the drafting of ITI projects and in carrying out
the corresponding procurement procedures.
The ITI IDA encourages and supports the Beneficiaries in getting organized
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for joint procurement and project implementation, as appropriate, in order
to streamline processes and achieve savings..
The ITI IDA monitors the project implementation process and submits
reports, every 45 days, to the Functional Working Group/Secretariat, and
every 3 months to the ITI IDA General Assembly, highlighting results,
forecasting delays, risks, etc.
The ITI IDA performs random verifications of contracts (through an external
expert) or if problems are encountered in project implementation.
The ITI IDA ensures the visibility of the projects through permanent public
information on project developments.
4.2. Monitoring and Evaluation (M&E)47
4.2.1. Introduction
The monitoring and evaluation has been developed according to the existing institutional framework
(quadripartite Protocol), in accordance with the evaluation criteria and the following bibliography:
1. Guide to Cost-benefit Analysis of Investment Projects, European Commission, Directorate-General
for Regional Policy, 2008.
2. Project Cycle Management Guidelines, Aid Delivery Methods, European Commission, 2004.
3. Identification of Project Selection Models for the 2014-2010 Regional Operational Programmes,
World Bank, 2013.
4. Guidance Document on Monitoring and Evaluation, European Regional Development Fund and
Cohesion Fund, for the 2014-2020 programming period, Concepts and Recommendations, European
Commission, 2014.
The proposed system for monitoring and evaluation connects the projects to the results of the NA
document, to the development of the objectives of the Danube Delta Integrated Sustainable
Strategy and to the indicators related to each OP. The recommended M&E system focuses on the DD
implementation strategy, being based on the quality of the attributes in the program and projects
with primary focus on relevance, effectiveness, efficiency and utility/sustainability.
The document quality evaluation criteria answer to the comments made by the client providing the
following information: the list of evaluation criteria, key questions answering to each evaluation
criteria, listing the indicators that measure the evaluation criteria, and the list of the stakeholders
involved in the monitoring/evaluation process. In addition, for each criterion are mentioned the
envisaged risks which may occur during the strategy implementation process, and the necessary
measures to take in order to reduce/solve the potential issues.
47
Reference: Guide to Cost-benefit Analysis of Investment Projects, European Commission, Directorate-General for Regional Policy, 2008. Project Cycle Management Guidelines, Aid Delivery Methods, European Commission, 2004 Identification of Project Selection Models for the 2014-2010 Regional Operational Programme, World Bank, 2013 Guidance Document on Monitoring and Evaluation, European Regional Development Fund and Cohesion Fund, for the 2014-2020 programming period, Concepts and Recommendations, European Commission, 2014
145
The system provides a checklist for the monitoring process in the 3 strategy implementation stages:
Monitoring the inception phase, the implementation phase and the concluding phase. The
implementation stage is connected to the Action Plan. This system should provide key indicators in
line with the specificity of each project.
The M&E process should be designed based on the “transparent and accountable management of
human, natural, economic and financial resources for the purposes of equitable and sustainable
development, in the content of a political and institutional environment that upholds human rights,
democratic principles and the rule of law”48.
The monitoring and evaluation mechanism supports the DD ITI stakeholders in: (i) analyzing the
project implementation process based on project specifications, indicators, and specific OP
requirements; (ii) facilitating the continuous improvement of the project preparation and
implementation processes; and (iii) improving the existing mechanisms. To ensure an effective M&E
system, qualitative assessment criteria for each stage of the project cycle are needed.
This chapter outlines an M&E system for the DD strategy implementation, based on the attributes of
the programs and projects. The monitoring and evaluation shall be carried out at two levels.
At the project level, the evaluation helps the ITI IDA and MAs to keep track of the performance of
the projects financed through the ITI mechanism (and also for any other funding sources), and can
check to what extent the projects respond to the development objectives of the Danube Delta
Integrated Sustainable Strategy 2030 and meet the indicators related to each OP.
At this level the evaluation focuses on: the project relevance, e.g. as it relates to the sector-
specific needs and objectives;
The utility of the project, e.g. the project impact (sustainability);
The efficiency of the project, e.g. the relation between the inputs used for the project and
the outputs created by the project;
The effectiveness of the project, e.g. the relation between the project objectives and results.
The Guidance Document on Program Monitoring and Evaluation for the 2014-2020 programming
period, Concepts and Recommendations, published on March 2014, presents in its Annex 1, a list of
common indicators for project evaluation (indicators for transport, ICT, environment, etc.).
At the program level, the evaluation helps the MA to measure outcomes and to what extent the
respective OP has an impact in the DD ITI area. The OPs will evaluate the degree of development
integration among OP axes.
48
Aid delivery methods, Volume 1, Project cycle management guidelines, EC, 2004
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Figure 24: Key evaluation criteria within the project Log frame matrix49
The Guidance Document on Program Monitoring and Evaluation for the 2014-2020 programming
period, Concepts and Recommendations, presents in its Annex 3 a structure for evaluation focusing
on four components, as follows:
(a) The activities evaluation process must be appropriately organized and resourced to meet its
purposes;
(b) The activities evaluation process must be planned in a transparent way so that the
evaluation results are available in a timely manner;
(c) The evaluation process design must establish objectives and appropriate methods and
means for coordinating the evaluation process and its results; and
(d) The evaluation activities must provide reliable and robust results.
4.2.2 Quality assessment criteria
The quality assessment criteria (ex post evaluation) support the consistent analysis and decision
making based on solid information, key documents, and stakeholders' capacity. The process allows
the Management and the DD ITI decision makers and managers to adapt to the criteria in line with
the local priorities and with the working environment.
The quality framework consists of three main sections. The first section, relevance, checks if the
project meets the priority needs based on the following criteria:
The project was formulated in accordance with the EU, national and local policies/plans.
49
The Logframe matrix consists of: (i) the framework of objectives, indicators and sources of information; (ii) the list of key assumptions to be monitored; and (iii) solid references. (Source
147
The stakeholders' mechanism is operational.
The target groups have been identified and their problems analyzed.
The main institutional capacity issues are addressed.
The relevant local responsibility is established.
The second section, feasibility, assesses the quality of the designed and implemented project in
order to meet target group needs based on the following criteria:
The work plan for the activities is prepared and accepted by all parties in order to assure the
coordination, financing arrangements, and support from other institutions and
organizations.
The resources and costs are clearly defined in the feasibility study, and the project has
positive economic return.
The assumptions and risks are well addressed in the feasibility study and a risk management
mechanism is in place.
The project meets technical requirements and standards, it is environmentally and socially
sound and locally accepted.
The third section, utility, assesses the subsequent benefits and management of the issues during the
implementation of the process. This section is more complex and deals with the following aspects:
The project remains relevant and feasible by the end of the process.
The project objective/objectives is/are being achieved.
The main sustainability issues, such as financial and human resources operating and
maintaining the project, are effectively addressed and in place by the end of the project
implementation.
4.2.3. Quality assessment criteria – Recommendation for the ITI DD
Table 22. Section 1 – Relevance
Evaluation criteria Key question Indicators Stakeholders involved
A. Relevance:
1. The project supports OP objectives
2. The project responds to a real problem of the target groups located in the DD region
Do the strategic objectives meet the problems identified in the DD region?
The action plan is supported by the individual project fiche
The approval of the DD Strategy by the Inter-ministerial Committee
Signatory Parties to the IDA Protocol, MRDPA, MEF, MARD, ITI IDA
Risks and similar measures. Risks may occur if the projects listed in the action plan are changed with
others which do not meet the strategic objectives. In this case, the DD ITI will inform the Signatory
Parties to the IDA Protocol showing: (i) the reasons why the project failed to meet the requirements;
(ii) the new project list. The Signatory Parties of the IDA Protocol in consultation with the specific
MAs have to approve the new list.
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Table 23: Phase 2 – Feasibility
Evaluation criteria Key question Indicators Stakeholders involved
B. Effectiveness
3. The projects are
feasible and expected
to realistically achieve
the OPs and the
strategic objectives
Do the project results
meet the sector-
specific objectives
formulated in the DD
Strategy?
Are the project results
in line with the OP
objectives?
Project indicators50
specified in the action
plan of the Strategy
Specific indicators in
the feasibility studies
and Cost-Benefits
Analysis51
Annual operational
reports52
Signatory Parties to
the Protocol, MRDPA,
MEF, MARD, ITI IDA
Project applicant
(public or private)
ITI IDA and MAs
Risks and similar measures. Risks may occur due to the constrains within the operating framework
and the capabilities of the implementing agencies, such as accidental vacancies, low skill profile of
the staff, and delays in the procurement process. In this case, specific actions are necessary, such as
enhancing the communication channels among stakeholders; the human resource development
through training programs; and/or the procurement procedures.
Table 24: Efficiency
Evaluation criteria Key question Indicators Stakeholders involved
C. Efficiency 4. Projects are measured by input-output ratio
Have the project results been achieved within the allocated resources?
ToR requirements formulated by the applicant Indicators in the feasibility study: a. Technical information b. Financing items (e.g. cost/unit) c. Timeframe Annual operational reports
Signatory Parties to the Protocol, MRDPA, MEF, MARD, ITI IDA Project applicant (public or private) Independent project evaluator Independent supervisor (during implementation) ITI IDA and MAs
Risks and similar measures. Risks may occur due to delays in various stages of the project
implementation. These delays may, for example, be generated by the quality of information in the
specifications or ToRs prepared by the applicant, by the lack of property information, by unclear
statutory planning documents, by an unfavorable climate, by the low accessibility in the project area,
or by the lack of coordination among actors involved in the project implementation. Some situations
may generate additional costs which according to the eligibility conditions may or may not be
50
Indicators should respond to OP indications, where applicable. The existing Needs Analysis provides relevant indicators for all sectors analyzed. 51
The cost-benefit analysis provides ex ante financial indicators and economic indicators (see Guide to Cost-Benefit Analysis of Investment Projects, European Commission, Directorate-General for Regional Policy, 2008. The World Bank study, 2013, ”Identification of Project Selection Models for the 2014-2020 Regional Operational Programme” presents under Chapter XI - Monitoring and evaluation the performance indicators used for the 2007-2013 programming period. 52
The operational Report includes the location, the activities, the resource schedule and budget. The rate of absorption indicator will also be included.
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funded from the EU funds. A reasonable level of risk needs to be accepted though, but it needs to be
mitigated, for example, by reliable data and information supporting the decision making and project
implementation and a project monitoring system applied at each stage of the project.
Table 25: Phase 3 – Utility
Evaluation criteria Key question Indicators Stakeholders involved
D. Sustainability This evaluation refers to the long term impact in terms of the sustainability of the intervention
Have the problems been solved/situations improved? Are the project benefits likely to be sustainable?
The existence of operators after the project implementation The existence of available funds for operation and maintenance after the project implementation Specific impact indicators for each project Evaluation and Audit reports
Project beneficiary Signatory Parties to the Protocol, MRDPA, MEF, MARD Specialized firms
Risks during implementation and similar measures. Due to the limited human and financial
resources in public institutions, and sometimes due to the low capacity to recover costs from the
utility users, some projects run the risk of not being sustainable in the long term. To partly address
such situations, projects defined as “major projects”, e.g. with an estimated cost of 25 or 50 million
Euros depending on the sector, need to have a full Cost-Benefit Analysis as per EU rules. Operators
need to have human and technical resources to provide the utility services in accordance with the
national standards.
4.2.4. Monitoring and reporting – recommended checklist for the implementation of the
Strategy
Monitoring helps deliver results, it contributes to the overall objectives of the project, it manages
available resources efficiently and it reports on progress. Therefore, reporting should be linked to
monitoring systems. The monitoring and reporting process encompasses activities focusing on
project progress, proposes initiatives and takes remedial actions, keeps the working plan
permanently updated. It is an ongoing process performed by the management units at the MAs
levels and at the DD ITI level, which deals with inputs, activities and results including the annual
absorption rate per project and location.
Here is a brief checklist for project preparation, implementation, and start-up phase:
1. Monitoring during the project inception/preparation phase
Ensuring institutional arrangements, including work relationships and communication
channels between stakeholders
Establishing contracting indications and arrangements (according to the legal provisions and
guidelines of each OP)
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Making resources available for the DD ITI (financial, human, logistics)
Preparing a project implementation plan for 2014-202053 and the related M&E system
2. Monitoring during the project implementation phase54
Deployment of resources for each project (logistics, human and financial resources)
Progress of projects based on a project implementation plan
Revisions of the implementation plan, as required
Periodic operational reporting on progress
3. Monitoring during the early operational stage
Ensuring that the beneficiary operates project outputs based on proper O&M plans
Ensuring an adequate human resource capacity
Ensuring that the coverage of the recurrent expenditures at the beneficiary level is secured
Indicators for evaluating and monitoring the Danube Delta Sustainable Development Strategy for the 2014-2030 period:
In order to monitor the strategy, the use of a minimal set of indicators will be considered, reflecting
with priority the impact of the projects proposed for implementation and the contribution of the
strategy to achieving the objectives of the EUROPE 2020 strategy:
No. Indicator Measure unit Data source
1. The employment rate of the population aged between 20 and 64
% NIS (the National Institute of Statistics), ANOFM (the National Agency for Employment)
2. The percentage of the GDP allocated to research, development and innovation activities
% NIS
3. The total volume of greenhouse gases emissions
Equivalent tons ANPM (the National Agency for Environmental Protection)
4. The share of energy from renewable resources
% TRANSELECTRICA, ANRE (the Romanian Energy Regulatory Authority)
5. The volume of CO2 emissions generated by the residential and public sectors
Equivalent tons Energy audits
6. Annual drop-out rate % ISJ (the County School Inspectorate), NIS
7. Share of young population (30-34) with higher education
% NIS
8. The number of people at risk of poverty and social exclusion
People NIS
53
To be finalized in 2015 after the approval of the Action Plan. 54
This is a continuous phase and will to begin after the approval of the Action Plan (2015).
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9. The aggregate value of the Local Human Development Index in the Danube Delta ITI territory
Value World Bank
10. The aggregate amount of the Territorial Development Index in the Danube Delta ITI territory
Value MDRAP
* the indicators will be updated in accordance with the changes that will be made to the present
Europa 2020 Strategy for the next 10 years
** it is recommended that after the approval of the priority projects, targets are set for each
indicator, for 2020 and 2030
It is advisable that the actions for monitoring the strategy implementation should be completed by
2017 and 2019, respectively, in correlation with the performance review process at national level
imposed by the European Commission for all Member States (in the context of stipulating, for the
first time, a performance reserve).
The selected monitoring indicators, as listed in the table below, should be documented, based on
secondary sources: the statistical data provided by the National Institute of Statistics (for example,
the TEMPO Online Database) and in the Annual Implementation Reports of the Operational
Programmes for the 2014-2020 period, prepared by the MAs/IBs (based on the data from the Single
Management Information System for Structural Instruments – SMIS), given that most of the priority
strategic projects are proposed for funding from the Operational Programmes.
If it is found that the information available from the existing data sources (the databases of the NIS,
the Annual Implementation Reports) are not sufficient to reflect the strategy implementation
progress, monitoring questionnaires may also be chosen, for the organizations implementing
relevant projects for the measures of the Danube Delta Sustainable Development Strategy for the
2014-2020 period. Nevertheless, one must bear in mind that collecting information from primary
sources, based on questionnaires, is a difficult process, and the results can be flawed by the high
rate of non-response.
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IV. Annexes
Annex 1. Definitions of the Areas
The Danube Delta (DD) is the area referred to as the Danube Delta Biosphere Reserve (DDBR).The
DDBR area is shown on the map below. It includes:
(i) The area between the Sf. Gheorghe and the Chilia branches of the Danube river
which is called the Core Delta due to its particular socio-economic characteristics;
(ii) The Razim-Sinoe-Babadag lake system and adjacent land areas; and
(iii) The area along the Danube river, west of Tulcea City, towards Galați.
Figure 25: Map of the Danube Delta Biosphere Reserve (DDBR)
The Study Area (the Danube Delta Region) can be divided as follows:
Area Area
1 The Core Delta: The Delta between the Chilia and Sfântu Gheorghe branches (channels)
2 The southern area, including the lakes/lagoons area, e.g. L. Razim, L. Sinoe, and L. Babadag
3 The area along the Danube, upstream from Tulcea city
The Study Area (also called the Danube Delta Region) is
highlighted in green and yellow on the map below. It covers
the DDBR and its Neighboring Area and consists of Tulcea
City, four towns (Babadag, Isaccea, Măcin and Sulina) and
thirty two communes. Four of the communes (Corbu, Istria,
Mihai Viteazu and Săcele) fall within the administrative
boundaries of Constanța County; all four bordering the bay
area of Razim-Sinoe Lake.
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Figure 26: The Danube Delta Area
Area 1 is referred to as the Core Delta (in Yellow), and Areas 2 and 3 (including Tulcea City) are
referred to as the Delta’s Neighboring Area (in Green).
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Annex 2: Applying the Participatory Approach
Community involvement
The communities were involved through workshops and interviews in conjunction with visits by
sector teams to various communities, in each stage of the Strategy development process – the
Diagnostic report in identifying issues and constraints, the Vision in identifying a preferred
development scenario, and in the Needs Assessment through the crowd-sourcing of project ideas.
Community involvement in the Diagnostic Report: Between September and December 2013,
consultations were held in all communes in the Core Delta (e.g. the area between the Chilia and Sf.
Gheorghe channels) and in all the cities in the Danube Delta region (Babadag, Isaccea, Măcin and
Sulina). Two meetings were held in each locality, one with the mayor and a few public sector
employees (councilors, teachers, nurses, border police, etc.), and one with a cross-section of
residents (business people, fishermen, cattle herders, pensioners, service providers, etc.). At the
consultations in Babadag, Măcin, and Isaccea, officials from the nearby communes also participated.
The meetings had two objectives: (a) to learn about key issues, concerns, development needs, and
opportunities in the town/commune/village; and (b) to learn the participants’ opinions about their
vision for their town/commune/village and the Delta (“What do we wish the Commune and the
Delta to be in 2030?”).
The vision for the Danube Delta Region was achieved from an extensive consultation and diagnostic
process. Consultative workshops were held in eight locations in the region, with a total of more than
300 participants from the communes and towns/city across the region. These were followed by two
similar workshops in Bucharest, one with the young people who left the Delta for education or jobs,
and one with the representatives of the government organizations.
The Needs Assessment (NA) was made up of crowd-sourced project ideas during the mentioned
consultative workshops. The team crowd-sourced close to 800 project ideas to residents during the
visioning exercise, which were then considered by the sector-specific experts for the NA.
Collaborative work with the Central Government and Local Authorities
The Strategy was prepared by sector-specific experts in close collaboration with the respective local
authorities and through discussions with key central government experts. Under the umbrella of the
Danube Delta Inter-institutional Committee, the team received feedback on previous deliverables.
There are strong policy dialogues between the Committee members and the sector-specific experts.
In addition, Tulcea County Council had compiled a list of projects from local stakeholders in the
preparation for the start of this strategy. This project list was reviewed and is used for the selection
of the Priority Projects (see Sectoral Summary). During the team's field visits, needs were further
identified and discussed with mayors and local authorities. In order to have a clear vision, special
attention was paid to balancing “bottom-up” and “top-down” approaches by carrying out additional
interviews with the representatives of the central government.
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Annex 3: Application of the Prioritization Principles – Example for Illustration Purposes Only
Project Weight
1 Environmental Strengthening
(35%)
2 Economic
Development (35%)
3 Geographic magnitude
(10%)
4 Level of difficulty and financial sustainability
(15%)
5 Level of
preparedness (5%)
Total Score
Project A 6.4 (2.2)* 6.6 (2.3) 7 (0.7) 4 (0.6) 3.5 (0.2) 6.0**
Project B
Etc.
*(weight x score) ** sum of (....)
Calculation of the score for Criteria No. 1 for Project A:
Sub-criterion
a Weight
b Score (1-10)
Score Sub-criterion
(a x b)
The project has a positive environmental impact in the development area
30% 10 3
The project reduces environmental risks over time 10% 5 0.5
The project prevents loss of biodiversity and loss of ecosystem services 30% 7 2.1
The project strengthens environmental management 15% 3 0.5
The project empowers local communities. 15% 2 0.3
Total 100% NA 6.4
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Calculation of the score for Criteria No. 2 for Project A:
Sub-criterion
n/a
(weight)
b
Score (1-10)
Score Sub-criterion
(a x b)
The project enhances the destination and will attract visitors to the region 40% 10 4
The project improves the quality of life through improved services 40% 5 2
The project contributes to synergies for the development of the region 10% 2 0.2
The project has energy efficiency/low carbon emissions impact 10% 4 0.4
Total 100% NA 6.6
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Annex 4: Integration tables between the OPs and the axes within the OPs
OP
Priority axes Strategy pillars
Pillar I: Protecting the environmental and natural resources assets 1. Environment, Biodiversity, Forests 2. Energy Efficiency and Climate Change, Disaster Risk Management and Emergencies associated to pollution risks
Pillar II: Improving the economy 1. Tourism 2. Fishery and aquaculture 3. Agriculture and Rural Development
Pillar III: Improving connectivity 1. Transport 2. Information & Communication Technology
Pillar IV: Providing public services
1. Water Supply and Sewerage Systems and Integrated Water Management 2. Solid Waste Management 3. Education 4. Healthcare 5. Social Inclusion and Protection
Pillar V: Promoting efficiency, affordability and sustainability 1. Administrative Capacity 2. Technical Assistance for Program Implementation
ROP
PA 2: Improving competitiveness of the small and medium enterprises
PA 3: Supporting the transition towards a low-carbon economy
PA 5: Improving urban environment and the sustainable conservation, protection and capitalization of the
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cultural heritage
PA 6: Improving the road infrastructure of regional importance
PA 7: Diversifying local economies through the sustainable development of tourism
PA 8: Health and social infrastructure development
PA 10: Improving the educational infrastructure
LI OP
PA 2: Developing a quality, sustainable and efficient multimodal transport system
PA 3: Developing the environmental infrastructure in terms of efficient resource management
PA 4 – Environmental protection through measures for the conservation of biodiversity, air
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quality monitoring and decontamination of historically polluted sites
PA 5 – Promoting the adaptation to climate changes, risk prevention and management
PA 6 – Promoting clean energy and energy efficiency in order to support a low-carbon economy
AC OP
PA 1 – Effective public administration and legal system
PA 2 – Accessible and transparent public administration and legal system
OP
Priority axes Strategy pillars
Pillar I: Protecting the environmental and natural resources assets 1. Environment, Biodiversity, Forests 2. Energy Efficiency and Climate
Pillar II: Improving the economy 1. Tourism 2. Fishery and aquaculture 3. Agriculture and Rural Development
Pillar III: Improving connectivity 1. Transport 2. Information & Communication Technology
Pillar IV: Providing public services
1. Water Supply and Sewerage Systems and Integrated Water Management 2. Solid Waste Management 3. Education
Pillar V: Promoting efficiency, affordability and sustainability 1. Administrative Capacity 2. Technical Assistance for Program
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Change, Disaster Risk Management and Emergencies associated to pollution risks
4. Healthcare 5. Social Inclusion and Protection
Implementation
Competitiveness OP
PA 1 – Research, technological development and innovation (RDI) in support of economic competitiveness and business development
PA 2: Information and Communication Technology (ICT) for a competitive digital economy
HC OP
PA 1 – Youth Employment Initiative
PA 1 – Youth Employment Initiative (YEI)
PA 3 – Jobs for all
PA 4. Social Inclusion and combating poverty
PA 6 – Education
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and skills
OPTA
PA 1 – Strengthening the beneficiaries’ capacity to prepare and implement ESIF funded projects and the dissemination of related information
OP
Priority axes Strategy pillars
Pillar I: Protecting the environmental and natural resources assets 1. Environment, Biodiversity, Forests 2. Energy Efficiency and Climate Change, Disaster Risk Management and Emergencies associated to pollution risks
Pillar II: Improving the economy 1. Tourism 2. Fishery and aquaculture 3. Agriculture and Rural Development
Pillar III: Improving connectivity 1. Transport 2. Information & Communication Technology
Pillar IV: Providing public services
1. Water Supply and Sewerage Systems and Integrated Water Management 2. Solid Waste Management 3. Education 4. Healthcare 5. Social Inclusion and Protection
Pillar V: Promoting efficiency, affordability and sustainability 1. Administrative Capacity 2. Technical Assistance for Program Implementation
NRDP
M4 Investment in physical assets
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M 6 –Development of farms and enterprises
M 7 – Basic services and village renewal in rural areas
M10 – Agri-environment and climate
M 19 – Supporting LEADER local development (CLLD)
OP FMA
Aquaculture investments
Maritime fishery ports/collection points in Sulina, Gura Portiței, Priboina, Corbu
Collection points in Murighiol, Jurilovca, Crișan
3 areas for FLAG activities; in Dunărea de Jos; the Delta; Razim-Sinoe
Investments in ecological reconstruction in areas with natural reproduction of fish and other related investments (dredging, channels,
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renaturation).
