Abstract

THE ECONOMIC REGENERATION OF
LAGGING REGIONS. AN INQUIRY INTO
THE REGIONAL OPERATIONALPROGRAMME CONTRIBUTION, WITH
AN EMPHASIS ON THE ENTERPRISESUPPORT IN THE NORTH-EASTREGION OF ROMANIAREGENERAREA ECONOMICĂ A
REGIUNILOR RĂMASE ÎNURMĂ. ANALIZA CONTRIBUŢIEI
POR, CU ACCENT PE SPRIJINUL
ACORDAT MEDIULUI DEAFACERI ÎN REGIUNEA NORDEST
Daniela-Luminita CONSTANTIN
Professor Ph.D., Administration and Public Management
Faculty, Bucharest University of Economic Studies
E-mail: danielaconstantin_2005@yahoo.com

Zizi GOSCHIN
Professor Ph.D., Faculty of Economic Cybernetics, Statistics
and Informatics, Bucharest University of Economic Studies

Bogdan ILEANU
Lecturer Ph.D., Faculty of Economic Cybernetics, Statistics
and Informatics, Bucharest University of Economic Studies
E-mail: ileanub@yahoo.com

Abstract

The accession to the EU has created good
opportunities for the economic regeneration of thelagging regions provided the European funds
allocated to them be absorbed and employed in an
effective and efficient manner. This paper proposes abrief examination of the North-East region of
Romania, with a focus on Suceava county,
addressing the contribution of the Regional
Operational Programme (ROP) to the economic
recovery. In line with the regional problem and theidentified needs and strengths, enterprise support has
been chosen as the policy heading for this study. It
has been based on both available data and in-depth
interviews conducted within the GRINCOH FP7
project.
Keywords:

economicenterprise support

regeneration,

ROP,

Rezumat

Aderarea la Uniunea Europeana a creat oportunitati semnificative
pentru regenerarea economica a regiunilor ramase in urma, cu
conditia ca fondurile europene sa fie absorbite si utilizate intr-un
mod eficace si eficient. Aceasta lucrare examineaza situatia
regiunii de Nord-Est a Romaniei cu privire la contributia
Programului Operational Regional la relansarea economica,
concentrandu-se in mod deosebit pe judetul Suceava. Sprijinirea
mediului de afaceri local a fost aleasa drept tema centrala deinteres pentru acest studiu, fiind utilizate pentru analiza datele
disponibile in acest sens si raspunsurile la interviurile inprofunzime efectuate cu prilejul derularii proiectului FP7
GRINCOH, in care autorii au fost implicati ca membri ai echipei
de cercetare a ASE Bucuresti.

Cuvinte cheie: regenerare economica, POR, sprijinirea
mediului de afaceri

JEL CODES: R11, R28, R38, R58

Proceedings of the 11th Administration and Public
Management International Conference”Strategic Management for Local Communities”

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THE ECONOMIC REGENERATION OF LAGGING REGIONS. AN INQUIRY INTO THE REGIONALOPERATIONAL PROGRAMME CONTRIBUTION, WITH AN EMPHASIS ON THE ENTERPRISESUPPORT IN THE NORTH-EAST REGION OF ROMANIA

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1. INTRODUCTIONPROCEEDINGS OF THE 11TH ADMINISTRATION AND PUBLIC MANAGEMENT INTERNATIONAL CONFERENCE”Strategic Management for Local Communities”
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This paper proposes a case study which assesses the achievements of Cohesion Policy in the NorthEast region of Romania, with a particular emphasis on Suceava county. This county is characterized by
the predominance of employment in agriculture, weak industry and poor state of market services. Its
economic growth was hindered in the past by the border location. Moreover, the North-East region (oneof the eight NUTS 2 regions of Romania) is the least developed Romanian region and ranks third amongthe ‘lagging behind’ regions of the EU.
Considering the regional development realities in Romania, the allocations under the Regional
Operational Programme (ROP) have prioritised these lagging regions. As a result, the North-East region
has been allocated 16.32% of the ERDF for the ROP 2007-2013. The number of projects in Suceava
county represent around 20 per cent of the total number of projects implemented or ongoing in the NorthEast region, which is an above average among the North-East region’s six counties. Hence, thesignificance of the case study is twofold: on the one hand it offers a spotlight on a very sensitive area of
Romania in terms of regional development level; on the other hand it discusses the added value, strategic
quality and administrative capacity which have made it possible to record results above the average in
the implementation process and, thus, to contribute to economic regeneration in this county.
In line with the regional problem and the identified needs and strengths, enterprise support has beenchosen as the policy heading for this study. There is a clear continuity between the priority axes and key
areas of intervention focusing on enterprise support in the ROP 2007-2013 and the enhancement of the
SME competitiveness in the Cohesion Policy for 2014-2020, as one of the key areas for economic growthand job creation.
The research has been based on both desk research – with inquiries into the most important programming
documents and result reports relating to the ROP in Romania and, in particular in the North-East region
and Suceava county, accompanied by large volume of data analysis – and interviews with the persons
involved in the implementation process – from local authorities to experts and beneficiaries at national,
regional and county level.
The paper is organized as follows. It starts with a discussion on the nature of regional problem andidentifies the needs as well as strengths and opportunities, the latter mainly deriving from the EU Cohesion
Policy and related ROP. A special emphasis is put on the enterprise support, as a policy heading for theundertaken study, followed by the assessment of the value added, in relation to the strategic quality andadministrative capacity. In the end the conclusions reveal the lessons that can be learnt from the 2007-

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2013 programme period, so as to reinforce the economic development in the North-East region in the

2. THE REGIONAL PROBLEM. NEEDS AND STRENGTHS
Suceava county is included in the North-East region, the least developed region in Romania (GDP/capita
is 0.675 if the national average is 1, while in Bucharest-Ilfov it is 2.063). According to the level of GDP per
capita, Suceava county is ranked third in the North-East region, after the counties of Iaşi and Bacau. In
the last five years, the GDP of Suceava county has seen a different evolution of GDP than the North-East
region as a whole. Although in 2007 real GDP growth at the county level was double (10.7%) of thepercentage growth at regional level (5.4%), in 2007, in the context of the economic crisis, GDP dropped
sharply, registering a negative growth (-3.9%), well below the regional average (3.6%). By 2009, the gap
had widened even more: GDP at county level reaching a percentage reduction of 5%, while at the regional
level it was increasing by 9.1% (Table 1).
TABLE 1 - GDP IN SUCEAVA COUNTY COMPARED TO NORTH-EAST REGION
2007
2008
2009
2010
2011
2012
2013
North-East region
GDP/capita
3698
4011
3303
3358
3555
4200
4500
(euro)GDP growth 5.4
3.6
9.1
-3.5
1.3
18.4
7.1
(%)
Suceava county
GDP/capita
3763
3774
3242
3292
3488
3900
4300
(euro)GDP growth 10.7
-3.9
-5
-3.2
1.6
11.8
10.25
(%)
Data source: Eurostat database

2014
4700
4.4
…
…

Economic efficiency of both North-East region and Suceava county, as reflected by labour productivity,
has been constantly situated well below national average. In accordance with this poor labour productivity,
net average earnings per employee in Suceava county represented 92.6 % if the regional average was
100 in 2009, placing the county on second lowest position in the region, while compared to the national
average it was only 82%if the national average was 100. The economy of the county is characterised by
low GDP per capita: for example, in 2012 it represented 95% of the North-East region average, 83% of
Romania and less than 16% of EU28. The growth in GDP per capita was about 16% lower than thenational average over the last 15 years prior to economic crisis (in all cases the average was 100).
Industry is currently recovering from the crisis, recording 20% growth in manufacturing in December 2012
against December 2011 and a 32.2% increase in manufacturing turnover during the same interval. The
population of Suceava county has been constantly diminishing since 1992, due to both negative natural

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next years.

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increase and out-migration triggered by industrial decline and poverty. Its population reached 614,451
persons (about 3.3% of the Romanian population) in 2011, while population density was 71.8 inhabitants
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Bucharest

per square kilometer, compared to the national average of 79.9.
In latest years both exogenous and endogenous factors acted in favour of developing the North-East
region and the county of Suceava, the former prevailing. They refer to exports, foreign direct investments(in particular in trade and woodworking sector), grants from the EU and other sources of funding. The
endogenous factors, mainly innovation and entrepreneurship had a smaller contribution. Other factorsthat positively influenced the economy of the region and county refer to the restructuring of the large firms
in food industry, constructions and installation, the establishment of many new small firms in tourism, foodindustry, etc. as well as direct investments in food industry SMEs supported by the remittances of the
Romanian emigrant workers. The biggest contribution to GVA in Suceava county has come frommanufacturing and agriculture. The agriculture development has been based on the high share of
agricultural land in total county’s surface (40.8%) and big share of employment in agriculture (45.42%).
The economic development of the region depends on the ability to address a large range of obstacles
that have hindered so far the development process: difficult access to finance for small producers (suchas farmers) and SMEs, lack of a long term vision for the development of the county, insufficient support
for innovation and entrepreneurship, complex procedures for accessing European funds and delays inreimbursement payments, frequent legislation changes; perpetuation of de-industrialization process; lackof investment in the environment (e.g. in waste collection and recycling, renewable energy); inadequate
use of agricultural land and the large share of subsistence farming; lack of tax incentives for new
investment; lack of own funds for investment and expensive credit; unequal and stiff competition fromforeign private companies entering any market where they find opportunity; reduced innovation andcompetitiveness in competition with foreign investors; an education system that fails to mobilize students
to training performance and lack of vocational secondary education, poor infrastructure, etc.
Despite these shortcomings, to a large extent, among the interviewed experts in the region there is aperception that both the national and EU interventions are concentrated on the regional needs. The most
relevant examples refer to the industrial parks related policy, preservation of environment, sustainable
development of tourism in Bucovina, measures for supporting farmers, forestry and timber processing,
etc. Interviewees also highlighted the lower taxation policy for firms applied in the second half of the 1990s
in order to support disadvantaged areas. Suceava county was a relevant case as a result of the closureof non-ferrous mining in the county in that period. However, the policy did not produce the expected results
as many firms in the disadvantaged areas did not employed local material resources and local workers.

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Regional policies are perceived as long-term policies, whereas sectoral ones are viewed as more focused,
sectoral or regional policies have the most significant impact: some respondents rank first the regional
policies, others – the sectoral ones. The emphasis is rather on the complementarity between sectoral andregional policies, with the former being supported by the latter. However, there is a significant concern
about increasing in urban-rural disparities: the interviewees acknowledge the coherent approach of the
ERDF based interventions and those financed by other sources but there are still problems in terms ofcomplementarity. A stronger correlation is needed especially between ERDF, EARDF and Cohesion Fundsupported programmes. ESF should also be included in this, as well as the support received from theWorld Bank. The impact of the horizontal policies is considered too, especially when it comes to the freemovement of persons: labour migration has created important sources of revenues for family members
who remain in the region and even for local development (e.g. small businesses) via remittances.
Suceava still remains a lagging behind county and, according to some of the interviewees, one of thereasons for this situation is the poor prioritisation of specific territorial needs in regional strategies. A
pessimistic opinion is that the only decision to produce real impact has been the national decision related
to the ROP to include of Suceava municipality among the urban development poles. Most interview
responses indicate infrastructure improvement and development, tourism promotion and human resource
development as the most important directions from the perspective of attracted funds and results ofprojects implemented. Interviewees also mentioned the lack of foresight and strategic vision for thehierarchy and correlation of local needs. Related to this is the issue of project approval being based onstrictly financial considerations, accompanied by the ’uninspired’ restrictions regarding the allocation of
specific funds to various projects, e.g. implementing projects for water supply network without sewage
system for the used water because the funds for sewage projects had been over; water network without
hydrant points for fire situations; the creation of a green area on the commune’s pasture, etc..
The development strategies of the North-East region and Suceava county, respectively, (see, forexample, Economic and Social Development Strategy of Suceava County, 2011-2020) are built aroundthe Cohesion Policy objectives, aiming to take full advantage of the funding opportunities they provide.
Cohesion policy is perceived to have important support in overcoming the effects of the financial crisis,
creating jobs for the youth and increasing the competitiveness of SMEs. Hence, competitiveness andsocial well-being are almost equally emphasized in the county. Yet, in some cases, taking into accountthat the North-East region is the poorest in Romania and one of the poorest in the whole EU, there issome specific focus on addressing social issues (e.g. through food aid for the poor).

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confined to some punctual objectives. There is not a clear opinion among interviewees about whether

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3. ENTERPRISE SUPPORT – A POLICY HEADING FOR THE UNDERTAKEN STUDYPROCEEDINGS OF THE 11TH ADMINISTRATION AND PUBLIC MANAGEMENT INTERNATIONAL CONFERENCE”Strategic Management for Local Communities”
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In line with the regional problem and the identified needs and strengths, enterprise support has beenchosen as the policy heading for this study. There is clear continuity between the priority axes and key
areas of intervention focusing on enterprise support in the ROP 2007-2013 (Government of Romania,2007) and the enhancement of SME competitiveness in the Cohesion Policy for 2014-2020, as one of the
key areas for economic growth and job creation. Thus, the ROP 2007-2013 not only contains a key areaof intervention (No.4) entirely dedicated to strengthening the regional and local business environment
but also indicative operations referring to business environment within “Support to sustainable
development of urban growth poles” and “Sustainable development and promotion of tourism” priority
axes (No.1 and No.5, respectively). Moreover, enterprise support cannot be separated from innovationand labour market oriented support, these two headings also contributing to business environment
consolidation and increasing performance. Also, it should be noted that the ROP is funding infrastructure
investments (hard investments), while innovation (understood in terms of the Oslo Manual) includes
investments in SMEs.
As far as Suceava county is concerned, an analysis of the top 10 projects (in terms of value) in the NorthEast region and Suceava county shows that in both cases only two projects are directly connected withthe enterprise support heading but the other projects – most of them focused on transportation
infrastructure - also contribute to a better development of the business environment by increased
accessibility (Constantin and Ileanu, 2014).

4. ADDED VALUE
From the very beginning the whole ROP was conceived so as to generate added value in various ways.
For example, as Romania in general and the North-East region in particular suffer from the lack of propertransport infrastructure important funds have been allocated for this axis. Further on, it helps to enhancing
the accomplishment of the objectives established for other axes such as ‘Support to sustainable
development of urban growth poles’ (Axis 1), ‘Strengthening the regional and local business environment’(Axis 4) or ‘Sustainable development and promotion of tourism’ (Axis 5). In turn, a better local businessenvironment or tourism development create additional sources of revenues for local budgets which canbe used for rehabilitation or modernization of county and local roads. At the same time, a better businessenvironment, a better transport infrastructure, in general better accessibility can contribute to attracting
more foreign investors in the region, etc.

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The enterprise support, funded via the whole Axis 4 and Key areas of intervention 1.1 and 5.2 has alocal economy as well. A series of multiplier effects have been created created in terms of output,
employment and income, attracting new activities, new areas (spread effects) in the development
process.
The inquiries into various evaluation reports (Inforegio, 2016a and Inforegio, 2016b) as well as theinterpretation of the experts’ opinions show that the added value of the ROP performance varies infinancial, strategic, operational, accountability and democratic terms. Thus, there are good partnership
structures established in accordance with the cohesion policy principles, reflected in the financial
partnerships too. When it comes to domestic plans and policies, however, the applying of the cohesion
policy principles, mechanisms, project appraisal and selection procedure seems to bring about only
moderate added value. Even if each Romanian region elaborated its own development plan, theimplementation and monitoring of these plans does not represent a bold activity at region’s level for
multiple reasons. For example, the responsibility of implementing these plans is not clearly established inadministrative terms at regional level as long as, according to the Regional Development Act still in force(Law No. 315/2004), the Romanian NUTS2 regions do not have legal personality.
With regard to Suceava county, the respondents to our in-depth interviews consider that their county’s
development strategy is well-structured, but its implementation is a long-term, difficult process as a resultof poor financing, frequent political changes, insufficient coordination between local administrations andcounty administration for promoting larger projects of county interest. Interviewees have also pointed at
the major role that has to be played by the County Council and the Prefecture in the county development
process, considering their decision, planning, coordination, evaluation, control competencies. The needto expand coordination and cooperation between these institutions and the private sector, NGOs, andcivil society has been also emphasized, as well as the need of improving coordination between the county
council and local public administration. At the same time, it should be noted that the establishment ofpartnerships between Suceava county and NUTS 3 units from other countries has been considered an
important step towards sustainable, integrated social-economic development.
In a broader context, the regional (NUTS 2) development strategy and corresponding regional
development plan has been given an 8 on a scale from 1 to 10 in terms of its content by someinterviewees. Even if there are close ties between the regional development plans and the ROP, they do
not overlap and, as mentioned before, given the lack of legal personality in the case of NUTS 2 regions,the regional plans have an orientation character, without the necessary levers for implementation.

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special significance for the development of the local business environment and for the whole regional andCONSTANTIN Daniela-Luminita, GOSCHIN Zizi and ILEANU Bogdan

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Besides the above comments, it can be added that in the case of enterprise support significant difficulties
are noticed with regard to co-financing capacity: they come from the need to ensure the own contribution
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in relation to the eligible expenses, which, in the SMEs case, can reach 30%. The contribution is muchhigher if the ineligible expenses are considered as well.
As regards the administrative capacity, it is considered good and very good in general terms. The efforts
paid in this respect from the very pre-accession period and systematically continued afterwards with thestrong support and monitoring of the European Commission have shown the fruits in stable structuresand responsibilities, clear allocation of tasks, good human resource management systems, effective
support for project applications, well defined process of payment claims, effective first level controlling,etc.

CONCLUDING REMARKS
Considering the regional development realities in Romania, the allocations under the ROP have offeredpriority to the lagging regions. As the North-East region is the least developed Romanian NUTS 2 region
and also ranks third among the lagging behind regions of the EU, it received the highest allocation, namely
16.32% of the ERDF for ROP.
To date (30 April, 2016), the ROP has an absorption rate of 73.20%, compared to the average for all
operational programmes in Romania that is around 75% (Ministry of European Funds, 2016). The NorthEast region is above this average, with around 90%. The number of projects in Suceava county represents
around 20 per cent of the total number of projects implemented or ongoing in the North-East region, which
is a share above the average, considering that the North-East region counts six counties.
The institutions involved in the ROP management and implementation display a high degree of staff
stability, resulting in the continuity of the corresponding systems. There has been a series of training
sessions, consolidating the administrative performance in terms of human resources. The weaknesses
indicated by the respondents to interview questions relate mainly to internal procedures, financial
constraints, domestic legislation and politics, etc. The most frequent drawbacks mentioned by theinterviewees in the North-East region refer to bureaucracy, lack of transparency, insufficient
communication between institutions, the long waiting time for evaluation results, political intrusion, difficultaccess to co-financing credits especially because of high interest rates, delays in pre-financing payments,
delays in reimbursements, etc. In particular, for Suceava county the need to expand coordination andcooperation between the public institutions and the private environment, NGOs, civil society has beenemphasized, as well as the need of improve interaction between the county council and local public

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administration. Also, the establishment of partnerships between Suceava county and NUTS 3 units fromdevelopment.
The lessons learnt can be summarized as follows: rationality and flexibility in establishing priorities atregional and local level and harmonization with national headings, simplified procedures, clear andeffective implementation rules, a stable institutional and business environment, ensuring co-financing
capacity, and good communication between institutions.
There is a strong need to shift from development projects of local importance (locality, county level) to
real regional, large scale development projects, able to stimulate inter-county and even inter-regional
cooperation.
The regionalization - decentralization process, temporarily postponed, should be resumed, so as toensure the capacity of sub-national levels to address regional development objectives in accordance withthe specific features of their territories.
A more stable, effective institutional and business environment could contribute to creating the national
support for the cohesion policy funded objectives. On the other hand, the expectations regarding theEuropean Commission point to more flexibility, simplified procedures, combined, however, with keeping
high standards in terms of selection, monitoring and evaluation procedures.

ACKNOWLEDGEMENT
This paper draws on the research funded from the European Union Seventh Framework Programme(FP7/2007-2013) under grant agreement “Growth-Innovation-Competitiveness: Fostering Cohesion inCentral and Eastern Europe” (GRINCOH) no. 290657/29.03.2012. The research has been also co-fundedby UEFISCDI Romania, “Capacitati” programme, contract no. 200/2012.
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other counties is considered an important step towards sustainable, integrated social-economic

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Government of Romania (2007). Regional Operational Programme 2007-2013, Final Version, Ministry ofRegional Development, Public Works and Housing. Retrieved June 25, 2015 from:http://www.mdrl.ro/_documente/POR/ROP%20Final%20Version.pdf
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