REPORT 2.4, 2.6, 2.7, 2.10 Action Plan including priority projects to implement the Strategy

406 Pages·2015·3.95 MB·English

Project co-financed by the European Regional Development Fund through Operational Program for
Technical Assistance 2007-2013

REPORT 2.4, 2.6, 2.7, 2.10
Action Plan including priority projects to
implement the Strategy

June 2015
This report corresponds to the deliverable “Report 2.4, 2.6, 2.7 and 2.10 Action Plan including
priority projects to implement the Strategy” under the Advisory Services Agreement on Danube
Delta Integrated Sustainable Development Strategy between the Ministry of Regional Development
and Public Administration and the International Bank for Reconstruction and Development, signed
on September 4, 2013.
Contents
Executive Summary .............................................................................................................................. viii
I: Introduction ......................................................................................................................................... 1
1.1 Context and Methodology Applied ......................................................................................... 1
1.2 Structure of the ITI Proposal ................................................................................................... 6
II: Coordination with EU and National Policies, Strategies and Documents (Summary) ........................ 8
2.1 Coordination with EU Policies, Strategies and Documents .................................................... 8
2.2 Coordination with National and Regional Strategies ............................................................ 10
III: Priority Projects by OP Axes ............................................................................................................. 13
Large Infrastructure Operational Programme (POIM) ...................................................................... 13
Operational Program for Competitiveness (POC) ............................................................................. 33
Operational Program for Technical Assistance (OPTA) ..................................................................... 38
Regional Operational Programme 2014-2020 (POR) ........................................................................ 40
Operational Program for Administrative Capacity (POCA) ............................................................... 55
Operational Program for Human Capital (POCU) .............................................................................. 71
National Rural Development Program (PNDR) ................................................................................. 89
Operational Program for Fisheries and Maritime Affairs (POPAM) .................................................. 99
IV: Project Prioritization for the 2030 Strategy ................................................................................... 105
4.1 Approach and Criteria ......................................................................................................... 105
4.2 Grouping of the Interventions in the 2030 Strategy .......................................................... 106
V: Identifying other Funding Sources .................................................................................................. 114
VI: Spatial Distribution ........................................................................................................................ 116
5.1 Introduction ........................................................................................................................ 116
5.2 Functional Profile of the Danube Delta Region .................................................................. 117
5.3 Rural areas .......................................................................................................................... 119
5.4 Urban – rural linkages ......................................................................................................... 119
5.5 The Biosphere Reserve (the Delta) ..................................................................................... 119
5.6 Spatial development ........................................................................................................... 120
VII. Integration and Synergies ............................................................................................................. 126
VIII: Institutional Arrangements for Implementation ......................................................................... 129
7.1 National-level arrangements .............................................................................................. 129
7.2 Local arrangements ............................................................................................................. 133
IX: Monitoring and Evaluation ............................................................................................................ 141
X: Implementation Planning ............................................................................................................... 156
10.1 Implementation Sequencing (Schedule) ............................................................................. 156
10.2 Resource and Budget Consideration ................................................................................... 167
10.3 Financial Sustainability of Capital Investments................................................................... 167
10.4 Coordination of Investments funded by ITI and Other Sources. ........................................ 170
Annexes ............................................................................................................................................... 172
Annex 1: Area Definitions ................................................................................................................ 172
Annex 2: Schedule for the Advisory Services (Danube Delta Integrated Sustainable Development
Strategy) .......................................................................................................................................... 174
Annex 3: Brief Descriptions of the Pillars of the Strategy ............................................................... 175
Annex 4: Strategic Sectorial Objectives ........................................................................................... 178
Annex 5: Danube Delta Integrated Sustainable Development Strategy - Project Prioritization..... 183
Annex 6: Relationships between OP Axis and DDIS Pillars and Sectors .......................................... 193
Annex 7: Particularly Strong Sectorial Linkages .............................................................................. 198
Annex 8: Outline Schedule for Priority Types of Interventions / Projects ...................................... 199
Annex 9: Project Fiches for projects eligible for EU funding ........................................................... 213
Annex 10: Project Fiches for projects with financing from other potential sources ...................... 316

Figures
Figure 1: The Vision Motivates the Strategic Objectives, which Cascade Down to the Five Pillars. ..... ix
Figure 2: Current functional structure of the Danube Delta Region ...................................................... 2
Figure 3: The Vision Motivates the Strategic Objectives, which Cascade Down to the Five Pillars. ...... 4
Figure 4: Spatial distribution of the residents in the Danube Delta Region ....................................... 116
Figure 5: Spatial distribution of Territorial Administrative Units (surface areas and inhabitants) ..... 117
Figure 6: Functional structure of the Danube Delta Region ............................................................... 118
Figure 7: Polycentric spatial profile of the Danube Delta Region ....................................................... 121
Figure 8: Spatial Distribution of Interventions in Pillar 1 - Protecting Environmental and Natural
Resource Assets .................................................................................................................................. 122
Figure 9: Spatial Distribution of Interventions in Pillar 2 – Improving the Economy ......................... 123
Figure 10: Spatial Distribution of Interventions in Pillar 3 – Improving Connectivity ........................ 124
Figure 11: Spatial Distribution of Interventions in Pillar 4 – Providing Public Services ...................... 125
Figure 12: Polycentric perspective of the Danube Delta Region ........................................................ 128
Figure 13: Institutional Structure for Managing ESIF 2014-2020 ....................................................... 130
Figure 14: The mission of the Association .......................................................................................... 137
Figure 15: ADI ITI DD Organizational chart ......................................................................................... 139
Figure 16: Institutional mechanisms for implementation of the ITI interventions ............................ 143
Figure 17: Timeframes for monitoring and evaluation ....................................................................... 143
Figure 18: Evaluation framework ........................................................................................................ 146
Figure 19: Map of the Danube Delta Biosphere Reserve (DDBR) ....................................................... 172
Figure 20: Area of the Danube Delta Region ...................................................................................... 173

Tables
Table 1: Integration of the Strategy Pillars with the Operational Programs with examples of the
sectors or types of interventions. ........................................................................................................... x
Table 2: OP Axes for which ITI allocations exist for Danube Delta region (2014 – 2020) ....................... 7
Table 3: LIOP ........................................................................................................................................ 15
Table 4: –COP, Axis 1 ............................................................................................................................. 34
Table 5: COP, Axis 2 ............................................................................................................................... 35
Table 6: Technical Assistance Operational Programme, Axis 1 ............................................................ 39
Table 7: ROP, Axis 2............................................................................................................................... 42
Table 8: ROP, Axis 3............................................................................................................................... 44
Table 10: ROP, Axis 5 ............................................................................................................................ 45
Table 11: ROP, Axis 6 ............................................................................................................................ 46
Table 12: Axis 7. Tourism - The diversification of local economies through sustainable tourism
development ......................................................................................................................................... 49
Table 13: ROP, Axis 8 ............................................................................................................................ 50
Table 14: ROP, Axis 10 .......................................................................................................................... 51
Table 15: ACOP, Axis 1, Specific Objective 1.1: Developing and introducing common systems and
standards in public administration that optimize decision making processes citizen, and businesses-
oriented, SCAP consistent ..................................................................................................................... 57
iv
Table 16: ACOP, Axis 1, Specific objective 1.2: Developing and implementing modern human
resource management policies and tools ............................................................................................. 60
Table 17: ACOP, Axis 2, Specific objective 2.1: Introducing common systems and standards in public
administration that optimize decision making processes citizen, and businesses-oriented, SCAP
consistent .............................................................................................................................................. 61
Table 18: ACOP, Axis 2, Specific objective 2.2: Increasing transparency, ethics and integrity within
public authorities and institutions ........................................................................................................ 66
Table 19: ACOP, Axis 2, Specific objective 2.3 Ensuring greater transparency and integrity in the legal
system in order to access and quality of provided services ................................................................. 70
Table 20: Human Capital Operational Programme, Axis 1 ................................................................... 73
Table 21: Human Capital Operational Programme, Axis 3 ................................................................... 75
Table 22: Human Capital Operational Programme, Axis 4 ................................................................... 79
Table 23: Human Capital Operational Programme, Axis 6 ................................................................... 83
Table 24: National Rural Development Program, Measure 4 ............................................................... 91
Table 25: National Rural Development Program, Measure 6 ............................................................... 93
Table 26: National Rural Development Program, Measure 7 ............................................................... 97
Table 29: National Rural Development Program, Measure 19 ............................................................. 97
Table 30: Fishery and Maritime Affairs Operational Programme (FMAOP), Union Priority 4 ............ 101
Table 31: Fishery and Maritime Affairs Operational Programme (FMAOP), Union Priority 2 ............ 102
Table 32: Fishery and Maritime Affairs Operational Programme (FMAOP), Union Priority 5 ............ 104
Table 33: Intermediary Bodies for ITI ................................................................................................. 140
Table 34: Indicators related to Sectoral Objectives ............................................................................ 147
Table 35. Summary of the timelines for the project fiches. ............................................................... 159
Table 36: Financial Sustainability Indicators for 2009-2012 ............................................................... 168

Boxes
Box 1: Vision Statement and Strategic Objectives for the Danube Delta Region (2030) ....................... 5
Box 2: Four-Party Protocol: Annexes 1 & 2 – Responsibilities of ADI ITI ............................................ 136
v
Abbreviations and Acronyms
ABA Water Basin Administration
ACOP Administrative Capacity Operational Programme
ADI/IDA Inter-Community Development Association
ADI - ITI Inter-Community Development Association - Integrated Territorial Investments
ARD Agriculture and Rural Development
ASC Area with Specific Constraints
BMW Biodegradable Municipal Waste
CAP Common Agricultural Policy
CC Climate Change
COP Competitiveness Operational Programme
DA Diagnostic Analysis
DDBR Danube Delta Biosphere Reserve
DDBRA Danube Delta Biosphere Reserve Administration
DDISDS Danube Delta Integrated Sustainable Development Strategy
DMO Destination Management Organization
DN National Road
DRM Disaster Risk Management
EAFRD European Agricultural Fund for Rural Development
EAGF European Agricultural Guarantee Fund
EC European Commission
ECEC Early Childhood Education and Care
EE Energy Efficiency
EIP European Innovation Partnerships
EPRI Preliminary Flood Risk Assessment
ESIF European Structural and Investment Funds
ESDP European Spatial Development Perspective
ESFRI European Strategy Forum on Research Infra-structures
ESL Early School Leaving
EU European Union
FLAG Fisheries Local Action Groups
FMAOP Fishery and Maritime Affairs Operational Programme
FS Feasibility studies
FWG Functional Working Group
GHG Greenhouse gases
GIS Geographic(al) information system(s)
GTMP General Transport Master Plan
HCOP Human Capital Operational Programme
ICT Information and Communication Technology
IDMIS Integrated Disaster Management Information System
IES Inspectorate for Emergency Situations
INHGA National Institute of Hydrology and Water Management
ITI Integrated Territorial Investments
ITI OP Integrated Territorial Investments Operational Programme
IWM Integrated Water Management
LCCR Local Climate Change Recommendations
LEER Local Energy Efficiency Recommendations
LIOP Large Infrastructure Operational Programme
LLL Lifelong Learning
MARD Ministry of Agriculture and Rural Development
MEWF Ministry of Environment, Water and Forests
vi
MEF Ministry of European Funds
MRDPA Ministry of Regional Development and Public Administration
NA Needs Assessment
NARW National Administration "Romanian Waters"
NEET Not in employment, education or training
NDP National Development Programme
NLDP National Local Development Programme
NRDP National Rural Development Programme
NSRF National Strategic Reference Framework
OP Operational Programme
O&M Operations and Maintenance
PE European Parliament
PHC Primary Health Care
PHD Public Health Directorate
PIU Project Implementation Unit
PPP Public-private partnership
RDI Research, Development and Innovation
ROP Regional Operational Program
SEA Strategic Environmental Assessment
SMEs Small and Medium Enterprises
SMURD Mobile Emergency Service for Resuscitation and Extrication
SNCDI National Strategy of Research, Development and Innovation
SWM Solid Waste Management
TA Technical Assistance
TAOP Technical Assistance Operational Programme
TCC Tulcea County Council
TRACE The Tool For Rapid Assessment Of City Energy
UAA Utilized Agricultural Area
UNESCO United Nations Educational, Scientific and Cultural Organization
VAT Value Added Tax
VET Vocational Education And Training
WSS Water supply and sanitation
WTP Water Treatment Plant
WWF World Wide Fund for Nature
WWTP Wastewater Treatment Plant

vii
Executive Summary
The Integrated Territorial Investment (ITI) Proposal is a result of a strategic development process.
The ITI is a new instrument of European Structural and Investment Funds (ESIF), which can draw on
several European funds in a sectorally and spatially integrated manner1. 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 (the Strategy) for the Danube Delta and its neighboring area (the
Danube Delta Region)2 with horizon 2030, and to prepare an action plan (with horizon 2020) to
implement such a strategy. The action plan was defined as having two parts: (a) an ITI Proposal with
proposed interventions that are eligible for ITI funding, as defined by the Government of Romania;
and (b) a full Action Plan, including interventions that are not eligible for ITI funding, and for which
other sources of financing need to be sought.

The ITI Proposal includes priority ITI interventions and material to help operationalize their
implementation. The proposed interventions will require prioritization and sequencing by the
implementing organizations, taking sustainability and affordability considerations into account. The
ITI Proposal includes a project prioritization guide, and suggested sequencing considerations,
implementation arrangements, and a monitoring and evaluation framework. The spatial
characteristic of the Region are highlighted, including urban-rural and urban-urban linkages. The spatial
distribution of proposed projects/interventions respects the unique character of the Region, and
enhances both its diversity and coherence.

The proposed interventions support the two overarching objectives of the Strategy – to conserve
the environment on one hand, and to develop a sustainable, green local economy on the other –
and they are grouped under five pillars. A vision for the Region was derived through consultations
with the local communities and authorities as well as representatives of central government units
and other stakeholders and NGOs. The Vision motivated the twin strategic objectives of the Strategy,
which then were cascaded down into 5 pillars (Figure 1), which were then further elaborated into 16
sectors with two to five sectoral objectives each. 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

1 For more information, see http://ec.europa.eu/regional_policy/sources/docgener/informat/2014/iti_en.pdf
2 Area definitions are found in Annex 1. The Danube Delta (DD) is the area referred to as the Danube Delta
Biosphere Reserve (DDBR). This covers: (i) the Core Delta (the area between the Sf. Gheorghe and the Chilia
branches of the Danube River); (ii) the Razim-Sinoe-Babadag lake system and adjacent land areas; and (iii) the
area along the Danube River west of Tulcea City towards Galati. The Study Area – also called the Danube
Delta Region - covers DDBR and its Neighboring Area. The Study Area consists of Tulcea City, four towns
(Babadag, Isaccea, Măcin, and Sulina), and thirty two communes (the total number of communes in Tulcea
county is 46). Four communes (Corbu, Istria, Mihai Viteazu, and Săcele) are in Constanța Couynty, all four
bordering the bay area of the Razim-Sinoe lake system.
emphasis on commercial fishing versus transition towards higher-value recreational fishing; and
more focus on support for improvement of existing accommodations than new ones to support the
proposed small-scale nature-and-culture based tourism, until the demand will warrant expansion.
Additional trade-offs (prioritization) due to investment funding and implementation capacity
constraints may need to be made.
Figure 1: The Vision Motivates the Strategic Objectives, which Cascade Down to the Five Pillars.

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; and supported by urban service
centers
Strategic Objective 1: Strategic Objective 2: Develop a green and

Conserve the unique inclusive local economy, based on sustainable
environmental assets through consumption and protection, resource efficient,
scientifically-guided capitalizing on the area’s comparative
environmental management, advantages, supported by improved public

and by empowering the local services.
communities to be proactive
guardians of this unique Pillar II: Pillar III: Pillar IV:

global heritage. Improving the Improving Providing
Economy Connectivity Public
Services

Pillar I: Protecting the
Environmental and

Natural Resource Assets

Pillar V: Promoting Efficiency, Affordability and Sustainability

The Government of Romania has defined the ITI mechanism to include certain priority axes and
measures from seven Operational Programs and the National Rural Development Program
(NRDP). Drawing on five European funds, the ITI mechanism can cover eligible activities under seven
OPs and NRDP. The particular axes and measures selected by the Government of Romania aim to
reflect some of the specificities of the DD region. The Danube Delta Strategy is aligned closely with
national strategies and priorities. The OPs as well reflect the highest priorities for the country. Thus
the nexus between the Strategy and the OPs is extensive and strong. Yet certain specificities arise
from the way the ITI mechanism is defined, particularly in regards with its emphasis on large
infrastructure investments. Thus the 2020 ITI proposal is somewhat more infrastructure heavy as
ix
compared to the 2030 Strategy, which has a stronger environmental focus (balancing environmental
protection and socio-economic development objectives).

Table 1: Integration of the Strategy Pillars with the Operational Programs with examples of the sectors or
types of interventions.
Strategy Pillars
OP Pillar I: Pillar II: Pillar III: Pillar IV: Pillar V:
Protecting the Improving Improving Providing Promoting
Environmental the Connectivity Public Efficiency,
and Natural Economy Services Affordability
Resource and
Assets Sustainability
ROP Regional Operational Tourism Cultural Transport Health Urban
Program Energy efficiency heritage Education development
LIOP Large Infrastructure Biodiversity Water transport Water
OP Airport Sanitation
ACOP Administrative Reforms for Tourism DMO Reforms in Reforms in
Capacity OP environmental health household
management subsidies
COP Competitiveness OP Research for Research for ICT ICT solutions
conservation development in health
HCOP Human Capital OP Lifelong Social
learning inclusion
TAOP Technical ITI Program
Assistance OP management
NRDP National Rural Organic farming Farm and Rural
Development Programme business infrastructur
development e
FMAOP Fisheries and Fisheries Aquaculture
Maritime Affairs OP management development

The proposed interventions under each OP demonstrate complementarity and integration. The
tourism potential in the DD will remain constrained unless urban services (water, sanitation and
garbage collection supported by LIOP and NRDP) and tourism infrastructure (ROP) are improved.
Services such as health and education will rely increasingly on virtual communication tools (ICT
under COP). More tourism benefits will emerge, once more attractions (ROP) and recreational
fishing, aquaculture (FMAOP, HCOP), organic farming (NRDP), guided tours (HCOP), etc. are
developed. Since the natural and cultural assets are the key attraction of the region, restoring,
protecting and enhancing them is of utmost importance under LIOP and ROP respectively. Beyond
integration and synergies across OPs through the broad-based planning process, links between
physical investments, policy and regulatory changes (ACOP), and institutional development and
technical assistance (TAOP), enhances benefits and sustains assets. Each proposed project/type of
intervention for ITI funding is described under the respective OP Axis, including how they
complement and enhance each other as an integrated territorial development program.3 Full project

3 The project descriptions include applicant/beneficiary, the project’s relationship to earlier defined needs, its
justification, the correlation with the particular OP Axis, and indications of synergies with other OPs. It is
indicated if the project was specifically suggested by Tulcea County Council (TCC) or defined by the World Bank
study team. Suggested priority level for the project in indicated, defined as High (H), Medium (M), or Lower (L).
x