RomaniasAbandonedChildren

TenYearsAftertheRevolution

AReporttoAmerica
Fromthe
U.S.Embassy
Bucharest,Romania

February2001

In1990,theworldlearnedaboutasecretnetworkofprisonlike
institutionshousingthousandsofchildreninRomania.Today,big
orphanagesarebeginningtocloseasalternativessuchassmaller
residentialhomes,motherchildshelters,fostercare,andfamily
counselingtakehold.Unwantedchildrenwereobjectstohideandcontrol.
Today,Romaniaisputtingthechildswellbeingandfamilysupportatthe
centerofsocialpolicy.

Thisisthestoryofhoworganizedhumancompassion,international
politicalpressure,awillingnationalgovernment,andlocal
nongovernmentalorganizations(NGOs)havetogetherchanged
Romaniaschildwelfaresystem.

Since1990,theU.S.governmenthascontributedmightilytothe
transformationofchildrenslivesinRomania.TheU.S.Embassyin
BucharestsubmitsthisreporttotheAmericanpeopleasatestamentto
thisgruelingbutnobleeffort.

(JCRSignature?)

I.

II.

III.

IV.
V:

TABLEOFCONTENTS

ExecutiveSummary

TheCrisis:ForgottenChildren

TheResponse:GlobalMobilization
TheProblem:NoAlternativestoInstitutions
TheAnswer:BuildingFamilyOriented,CommunityBased
Services

WhereWeandtheChildrenStandNow
A
.
TheChildren
B.
C.

MajorDonorsandInternationalFinancialInstitutions
ObstaclesToProgress

EXECUTIVESUMMARY
Institutionshousingabandoned,sick,anddisabledchildreninRomaniawere
amongtheworstproblemsconfrontingthenewlyestablisheddemocracyinJanuary
1990afterthedramaticcollapseofCommunismrevealedlittleknownhorrorsof
massivemistreatment.

UndertheCommunistregimeledbyNicolaeCeausescu,policiestopromotebig
familiesmadecontraceptionandabortionillegal.Meanwhile,miserableeconomic
measuresinthelate1970sand1980screatedfoodscarcity,energyshortages,and
rampantnationalpovertywhichcontributedtotheinstitutionalizationofmorethan
170,000children.Withnocommunitybasedchildcarealternativesorcivilsociety
involvement,doctorsadvisedstrugglingfamiliestoplacechildrenininstitutions.
Disabledchildrenwerefurthersegregated,placedinisolatedruralinstitutionswithlittle
publicscrutinyordecentmedicalcare.By1989,therewereover700institutions
warehousingchildrenfrominfantstoyoungadultsage18acrossthecountry.

In1989,Westernpressexposedthedeplorablesituationofinstitutionalized
childreninRomania,triggeringafloodofinternationalassistance.Overthelastten
years,theinternationalcommunityhasmadeheroiceffortstoimprovetheliving
conditionsinorphanages,decreaseRomaniasrelianceonbiginstitutions,anddevelop
sustainableprogramstohelpatriskfamiliesbeforetheyabandontheirchildren.
Internationalattentionhasbeenaprimeforceinbringingmillionsofdollarsinaidand
thousandsofvolunteerstoRomaniatohelpconstructachildwelfaresystembasedon
theWesternmodelwhichputsachildswellbeingatthecenterofpolicyapproaches
andpracticalintervention.

Initiallymultilateraldonors,churchesworldwide,PrivateVoluntaryOrganizations
(PVOs),andcountriessuchastheUnitedStatestargetedfundingandvolunteerefforts
toavertthenearstarvation,disease,emotionaltrauma,andevendeaththatconfronted
childrenhousedinthesedilapidatingfacilities.Earlyresponsefocusedonemergency
medicalaid,humanitarianassistance,andchildsurvivalprogramsincludingthe
provisionoffood,clothing,andstructuralrepairoforphanagefacilities.Besides
improvingitsphysicalstructure,isolatedinitiativesbydonors,publicandprivate,
directedatimprovingthechildwelfaresystemcouldnotbeeasilysustainedby
Romania.Inmanycasesbetween1990and1995,assoonasforeignassistanceended,
thesituationreturnedtothestatusquo.

In1996,severalstudiessponsoredbytheUnitedNationsChildrensFund
confirmedwhatmanydonorsandvolunteerssuspected:althoughthousandsofchildren
leftinstitutionsthroughadoptionintheearly1990s,theinstitutionalizedpopulationhad
risenagain.By1996,asmanychildrenwerelivinginRomanianorphanagesashadin
1990.Theirlivingconditionshadimproved;fewerchildrenwereopenlyabused.But
theirsecurityandhappinesswereoftentimescompromisedbythenegativeimpactof
institutionallife:littlestimulationorconstructiveplay,toofewcaregiverswithscarce
4

timeforlovinginteraction,anemia,earinfections,competitionforspace,forfood,for
peace.
SincetheentireRomanianchildwelfaresystemitsstructure,itsemployment
scheme,anditsbudgetsrevolvedaroundkeepingorphanagebedsfilled,the
legislativeandpolicyframeworkhadtoshift180degreestocreateasystemwithnew
incentives,emphasizingalternativestoinstitutionalization.Sincethenational
governmentmadedecisionsbetterconsideredatthelocallevel,anentiremoveto
decentralizepoliticaldecisionmakinghadtobeinitiated.SinceNGOswerenewplayers
inRomania,theirpotentialroleindeliveringsocialserviceshadtoberecognized.

Inrecentyears,between1996and2000,organizationshavemodifiedassistance
effortstoemphasizesustainableinterventionsaimedatdismantlingthewarehouse
systemwhichhasbeenintegraltochildcareinRomania.Althoughthefirstattemptsat
systemicchangescameevenearlier,in1993,whenmajordonorsandInternational
FinancialInstitutions(IFIs)independentlyrecognizedthathumanitarianreliefalone
wouldnot,andcouldnot,effectsustainableimprovementinthestatusofRomanian
children,by1997,donorsledbytheEuropeanUnion,hadsuccessfullypressuredthe
GovernmentofRomania(GOR)intomajorsystemicreformsofitschildwelfaresystem.
TheEuropeanUnion,infact,declaredthatforRomaniatojointheEUcommunity,it
wouldhavetobringitsentirechildwelfareapproachintolinewithEuropeansocial
servicestandards.

In1999,theGORcreatedtheNationalAgencyfortheProtectionofChildrens
Rights(NAPCR)whichfinallybecametheprimarychildpolicycoordinatorwith
jurisdictionforthemajorityofchildrenlivinginplacementcenters(orphanages).Onlyin
2000,didNAPCRtakeoverinstitutionsmanagedbytheMinistryofHealthfordisabled
childrenandinstitutionsforchildrenwithspecialeducationalneedsmanagedbythe
DepartmentofEducation.Resultsfromthisprogrammaticshift,whichhasoccurred
largelyoverthelastthreeyearsarenoteworthy:
Fromahighlycentralizedsystemofchaoticcentralcontrolbysomeseven
ministriestoadecentralizedsystembasedincountiesandthelocallevel
Fromasystemexclusivelybasedoninstitutionalresidenceandfamily
segregation,towardscommunitybasedservicesimplementedinallcounties
Fromasystemrunexclusivelybythestatetoonewhichincludeshundredsof
NGOsandPVOsinvolvedinchildprotectionactivities
Fromamedicalizedchildprotectionsystem(whichvariouslyexperimentedon
innocentvictims,givingthemunnecessaryinjectionsforexample,orleft
relativelysimplemedicalproblemsuntreated)toasystememphasizingthesocial
wellbeingofthechildandnotingthenegativeeffectsofinstitutionallife
Fromasystemaimedstarklyatchildsurvival,toarticulatedreformbased
strategiesforimprovingchildrenslives
Fromanenvironmentwithnosocialworkersatalltoasystemthatincludes
professionalstandardsofcareandethicsforanewsocialworkprofession
Fromthenonexistenceoffostercaretosome29,000infostercaretoday
5

I.

Fromlittlefinancialsupportforatriskfamiliestonearly30,000familiesreceiving
directassistancetoday
Fromunresponsivepoliticalleaderstoinclusionofthechildwelfareinthe
politicalagenda

TheCrisis:ForgottenChildren

TragicimagesofundernourishedRomanianchildren,tiedtosteelcribs,
rhythmicallybangingtheirheadsagainstwalls,lockedindimlylitrooms,supervisedby
custodianswithlittletimetoholdorcomfortthem,shockedWesternaudienceswhen
seenforthefirsttimeinearly1990.Thesewerenotjustafewchildren,inisolated
places,whohadsomehowfallenbetweenthecracksofadecentsystem.Thousandsof
children,roughly170,000childrenbetweenages0and18years,werelivinginthis
misery.TheywerespreadacrossRomaniainagulagoffallingdowninstitutions.Some
wereformerhuntinglodges.Otherswereformerbarracks.Noneweredesignedor
outfittedforthesesmallprisoners.

Romaniahadcreatedthisrapidlygrowingpopulationofabandoned,sick,and
disabledchildrenthroughsometwentyfiveyearsofterrorizingsocialandeconomic
policies.Romaniancompletedaharshcollectivizationandnationalizationprocessin
1965puttingallpropertyandthemeansofproductionunderstatecontrol.Twoyears
later,CommunistpartydictatorNicolaeCeausescuannouncedanambitiousplanfor
rapidindustrialgrowthwhichrequiredmoreworkers.Hebroughtpeasantstothecity
andheoutlawedcontraception,abortion,anddivorceinordertofulfillhisgrandiose
plansofdoublingthepopulationandincreasingproduction.

Withthisradicalattemptatsocialengineering,wefindtherootsofRomanias
childwelfarecrisis.Thepronatalistpoliciesresultedinunwantedchildren,andanew
cynicalattitude:ifthestatewantsmorechildren,thestatecantakecareofthemtoo.

Theforceddisplacementofpopulationsalsocontributedtothechildwelfare
crisis.Romaniahadlongreliedonextendedfamilies,andseveralgenerationsliving
together,tocareforitsyoung.Thedestructionofvillagelifeandexpansionofhulking
urbanapartmentblockstohouseyoungworkersbroughttocityfactories,brokeupthe
traditionalfamilycaregivingstructure.

Therewerenomoralinstitutions,independentofthestate,tocounseltroubled
families.Therewerenoalternativestostatehospitalsandstatedoctorsrecommending
thatinsecuremothersorimpoverishedfamilieshandchildrenovertostateinstitutions,
especiallyifthechildwasatallsickorexhibitinganytypeofdisability.

Onceachildenteredastateinstitution,complicatedlinesofauthorityinvolving
atleastsevennationalministriesaswellasnumerouslocalauthoritiesvirtuallyassured
thatthechildwouldbecomeestrangedfromhisorhernaturalfamily.Frequently,as
thechildgrew,hewouldbetransferredtoanotherinstitution,notnecessarilyinthe
countyhewasborn.So,theabandonedchildwastherebylostinsidethesystem.
6

Childhistorieswerenotnecessarilykeptforeachcharge.Noformalattemptsto
reintegrateachildwithhisparentswereevermade.Childrenweresegregatedfromthe
normalpopulation,neitherattendingschoolregularlynorgoingoutsideinstitutional
confines.

Inthe1980s,CeausescuinitiatedaneconomicprogramtopayallofRomanias
externaldebttointernationallendinginstitutions.Heimplementedapunishingdomestic
austerityplanthatcreatedmassivedomesticfoodandenergyshortages,notto
mentionshortagesofmedicalandsanitarysupplies.Romanianfamiliescouldnotfeed
ordressthemselvesletalonesupportmanychildren.

ThiseconomicseveritywasthecoupdegraceforRomaniasyoungestcitizens,
whowoundupinorphanagesoverflowingwithchildrenwhoseparentswere,infact,
alive.

IfdomesticshortageswerepainfulforaverageRomanians,trytoimaginethe
impactonforgottenchildplacementcenters,manyofwhichwerelocatedinRomanias
mostremoteregions,onthecountrysborders.Bythelate1980s,whenliving
conditionshadbecomealmostunbearable,manyorphanageshadnohotwater,andno
constantheateveninwinter.Notonlyweretherenodiapers,therewerenodetergents
tokeepdiapersortheorphanagesthemselvessanitary.

Infectionsstartedtospreadwiththelackofhygiene.Ashortageofmedical
supplies,includingvaccinesandantibiotics,meantthatchildrenweregetting,and
quicklytransmitting,disease.Aneedleshortagemeantthatoneneedlewasusedon
scoresofchildren,whichishowpediatricAIDSspreadthroughtheorphanages,making
Romaniathecountrywhere[almosthalfofallEuropeanchildrenwithAIDS]live.

TheorphanageAIDSepidemicwasntrecognizeduntilafter1990.Othermedical
traumasemergedrightaway:childrenwithstraightforwardearinfectionslosttheir
hearingfromthelackofantibiotics.Childrenwithcrossedeyesdevelopedpreventable
formsofblindness.Rasheslikethirdsdegreeburnsdevelopedwhenchildrensatin
urinesoakedbedsforentiredays.

Andmorechildrenkeptenteringthesevile,infectiousjails.

Becauseinstitutionsreceivedstatemoneybasedonthenumberofchildren
there,aperverseincentiveexistedfortheseplacestoallowovercrowding.Sincesocial
workasaprofessionaswellasnursinghadbeenoutlawedinthe1960s,staffinthe
centerswerenottrainedinpsychologyorchilddevelopment.Instead,badlypaidstaff
wereexpectedtocopewithhundredsoftraumatizedandseriouslyillchildren.

Controlratherthencarebecametherule.Stafftiedyoungchildrentotheircribs
orlockedgroupsofchildreninroomsinordertorestrictmovement.Becausefeedings
7

couldbeaccomplishedquickerwithbottles,youngchildrenuptoagefivewerefed
wateryformulasinsteadoffoodwithbottles,andwerenevertaughthowtofeed
themselveswithutensils.Malnourishedandstarvedofloveorstimulation,manynormal
infantsdevelopedavarietyofdifficulttodiagnoseabnormalities.Childrenwhoentered
thesystemwithphysicaloremotionaldisabilitieswereconsideredirrecoverable.They
weresegregatedandmistreated.Manywere,effectively,lefttodie.

II.

TheResponse:GlobalMobilization(19901995)

AlmostassoonasCNNfoundRomaniasorphanagesanddescribedtheyoung
victims,U.S.andWesternEuropeannongovernmentalorganizations(NGOs)began
floodingRomanianinstitutionswithmaterialgoods.Pajamas,diapers,toys,beds,
kitcheninstallations,plumbing,andevenmaterialfornewroofswerefastarriving,with
nowaytocoordinateallthegoodsandoffersofassistance.Itbecameclearwithinthe
firstyearofthisassistancethattheinstitutionshadneitherthecapacitynortheethical
fortitudetousealloftheaid.Muchofitquicklydisappearedtopersonalhomesthat
were,supposedly,lesswelloffthanorphanages.

ManyoftheinternationalNGOsandPVOsthatcameearlytohelp,established
themselvesaslocalentitiesinordertohaveapermanentpresenceandastrongerdaily
influenceonthechildrentargetedforhelp.Oneeffectivestrategyusedbyavarietyof
groupsfromaroundtheworldwastoadoptanorphanageandconcentrateon
improvinglivingconditionsinthatoneplace.Americanchurches,Swedishtowns,and
Belgianhospitalswereamongthegenerousentitiesthatpairedupwithasiteand
providedmaterialaid,money,volunteers,andtechnicalknowhowtoimprove
orphanagesonebyone.Someofthesehumanitarianorganizationsarestillatworkin
Romaniatoday.

Meanwhile,in1990theUnitedStatesGovernment(USG)urgedUNICEFto
developacoordinatingmechanismforinternationalandGORefforts.UNICEFhadthe
statusandknowledgetoserveasakindofneutralarbiteronbehalfofdesperately
needychildreninthemidstofadelicatepoliticalsituation.Romaniasnewgovernment
pleadedthatitwasignorantoftheabusiveorphanageconditions.Romanianpeople
themselveswereembarrassedtolearnaboutthecrisis,mostforthefirsttime.UNICEF
wasabletocreatesomeorderoutofcomplexattitudesandassistancechaos.

TheUSGsupportedUNICEFfinanciallybyprovidinghalfofitsbudget.This
strategyallowedUNICEFtoraiseevenmoremoneytoaddressthecrisis:Between1991
and1995,UNICEFsemergencyassistanceprogramforRomaniawasfundedthrough
supplementarydonationsfromtheU.S.,German,andDutchgovernments.TheU.S.
Congressdirectlyprovided$2millionforreliefactionandsupplies.Anexampleofthis
effectiveleveragingcanbeseenin1995:theU.S.allocated$5milliontoUNICEFwhich
turnedaroundandraisedmatchingfundsof$6.54fromEuropeangovernmentsand
nationalcommittees.

AllinternationalpartiesurgedtheRomaniangovernmenttosigntheUnited
NationsConventionontheRightsoftheChildandbegantoworkconscientiouslyon
implementingitsprovisions.TheRomanianssignedtheconventioninSeptember1990.
TheratificationofthisconventiontogetherwiththeHagueConventiononIntercountry
AdoptionarelandmarksinRomaniaschildwelfarehistorywhichcontinuetodrivemuch
ofcurrentprogress.

Duringthisfirstphaseofhumanitarianassistanceandtheemergenceofmore
comprehensivereformapproaches,theUSGremainedinformedabouttheactivitiesof
otherbilateraldonors,especiallytheFrench,Swiss,British,German,Benelux,and
Scandinaviangovernmentprogramswhichrepresentedvariedandcreativeapproaches
tothechildwelfaredilemma.

Between1990and1995,theUSGfocusedonnumerousobjectives
simultaneously,oftenworkingthroughotherorganizations,bothNGOsandPVOs.
BesidesUNICEF,earlyUSGpartnerswereProjectConcernInternational,WorldVision
ReliefandDevelopment,Inc.[checkformalname],and[WHOELSE?].Areviewof
theseactivitiesdemonstratesthattheRomanianchildwelfarecrisishadmany
dimensions.Mostactivitiesfellintothreecategories:1)Emergency,humanitarian,and
medicalassistance,2)Changingtheapproachtowardthechildthroughstafftraining
andhumanresourcedevelopment,and3)Beginninginstitutionalreform:

Emergency,humanitarian,andmedicalassistance
:
Physicallyrehabilitatingsomeexistinginstitutions
forappropriate
kitchenfacilities,heatingplants,indoorplumbing,electricalsupplyand
sewagedisposal.

Gettingneededsupplies
(includingplayandeducationaltoys,clothes,
furnishings,andteachingmaterials,etc.)towheretheywereneededmost.
USNGOstookthelead.

Takingacensus
ofinstitutionalizedchildrensincethedimensionsandscope
ofthecrisiswaslargelyanecdotal.

FindingthesourceofpediatricAIDS
withtheassistanceoftheCenters
forDiseaseControl.

Surgicallyrepairingminorconditions
thatcausedchildrentobe
designatedasdisabledincludingcleftpalette,crossedeyes,andclubfeet.

Studyingaspectsofchilddevelopment
includingtheimpactof
institutionalizationonchildrenandhowtodevelopmentallyevaluate
institutionalizedchildren.

StaffTrainingandHumanResourceDevelopment:
9

Reinstitutingsocialwork
asanacademicprofession.Fouryeardegree
traininginsocialworkatuniversitieswasreestablishedandsocialwork
professionalassociationswereinitiatedtoshareexperienceandknowledge.

Offeringshorttermtraining
:multiple2weeksessionstotrainsocial
assistantsandchildprotectionauthoritiesaboutalternativesto
institutionalization.

DuringtheCommunistregime,in1969,thefortyyearoldsocialworkprogram
wasabolishedfromuniversitycurricula.Theabsenceofacoreofprofessionalsocial
workershadagreatimpactonthewychildrenweretreatedinorphanagesandthekind
ofalternativesthatfamiliescoculdbeoffered.

In1991,withthehelpofU.S.andEuropeangraduateschools,threeuniversities
wereabletoofferathreeyearsocialworkprogramtoRomanians.Soonafouryear
degreeprogramwasintegratedatthreeadditionaluniversitiesintheschoolsoflaw,
educationorpsychology.Buildingthesocialworkprofessionwasidentifiedasacritical
humanresourceneedearlyon.

InstitutionalReform:
BuildingthecapacityoftheRomanianAdoptionCommittee
tocreate
asystemandstandardstoorganizeadoptionasanoptionto
institutionalization.

WorkingwiththeGORtoliberalizeadoptionlaws
soprospective
parentscouldadoptchildrenmoreeasily.In1990,complexproceduresdid
notfavoradoptionasasolutionforunwantedchildren.Thesystem
encouragedcorruptionandbuyingbabieswhichwerethenillegally
transportedacrossborders.Unqualifiedpeoplewerebrokeringthedeals.
Sincefewsocialworkersdidassessments,therewerecarelessmatchesand
fewobjectiveassessmentsofachildhealth,history,orneeds.

Pioneeringanddemonstratingnewmodels
ofchildcareandalternatives
toinstitutionalization,includingfamilyreunification,fostercaredomestic
adoption.

Thoughsignificantinstitutionalreformdidnotcharacterizethisperiod,two
importantGORactionssignaledthatdeeper,morecomprehensivechangeswereonthe
horizon:In1993,theRomaniangovernmentcreatedoftheNationalCommitteefor
ChildProtectiontocoordinateactivitiesintheinterestofchildrenandtodesignthe
governmentstrategyforchildwelfare.Twoyearslater,theCommitteedevelopedthe
NationalPlanofActioninFavoroftheChild,ablueprintforfuturereform.

10

11

III.

TheProblem:NoAlternativestoInstitutions

Despitethemassiveinjectionofhelpbetween1990and1995,thenumberof
childrenenteringinstitutionsagainbegantoriseinthemid1990s.Livingconditionsin
thechildplacementcentershadundoubtedlyimproved,andmorecasesnowbenefited
fromcompletedsocialinquiriesontheirstatusandneeds,butthetrenddisturbed
internationaldonorsandtheGORwhotogetherperceivedinstitutionalcareastheleast
bestalternativeforchildren.

Severalreliablestudiesconcludedthatwhilethemajorityofinstitutionalized
childrenin1990hadbeenreferredbydoctorsinmaternityandpediatrichospitals,most
newadmissionsin1995werecomingdirectlyfromhome.Povertywasthemost
commonoverarchingexplanationforwhythechildrenwereturnedovertothestate.
Familieswantedthesechildren,butcouldnotaffordtofeed,dress,orcareforthem
properly.Domesticviolencewasanotherincreasinglycommoncauseofchild
abandonment.Familysizeappearedtobeadeterminantofinstitutionalization:ahigh
proportionofnewadmissionshadthreeormoresiblings.

Familieswithchildrensufferingfromvariousmentalandphysicalimpairments
wereespeciallystrained,fortheirwerefewalternativecommunityservices,or
programsoffinancialsupport,tomakeiteasierforthemtohandlethesituationat
home.

Researchin1996byTheUnitedNationsChildrensFundidentifiedadisturbing
newtrend:manyfamilieswereusingorphanagesastemporarysolutionstocrisis.
Disabledchildrenstilltendedtoremaininthesystempermanently.Butmanychildren
withnophysicalormentaldifficultieswereplacedinacenterforsomeyears,then
returnedhome.Thus,whileitappearedfromannualdatathattheinstitutionalized
populationwasstatic,infactsomechildrenwerecyclinginandoutofinstitutionseven
astheadmissionratewasgrowingfasterthendonorsexpected.Thisphenomena
clearlygaveurgencytothenationalneedformoretemporary,alternativeservices.

Tragically,whilesomefamiliesplacedchildrenininstitutionsthinkingitwasa
temporarymeasure,intoomanycases,longtermseparationfromthefamilycreated
estrangementandnewdevelopmentalproblemsforthechild,includingtheinabilityto
reintegrateinschools.Sincetheirwasnonationalpolicypromotingreintegrationwith
biologicalorextendedfamilies,casesinwhichfamilieswerereunitedweresimplylucky.

AnalysisofthestructureofRomaniaschildwelfaresystemfoundnewevidence
thatdirectorsandstaffofchildplacementcentercouldnotbemaderesponsiblefor
shrinkingtheinstitutionstheycontrolled.Theirjobsoftenlocatedinareaswithfew
otheremploymentoptionsdependedonretaining,evenincreasing,thepopulationof
institutionalizedchildren.

EconomicinsecuritywasontheriseinRomania,withinadequatesocialbenefits
andalackofcommunityalternativesforatriskchildren.Theresult:boomingbusiness
12

forthelargeinstitutionalwarehousesthatwerenowdecentstructuresbutindecent
homes.

Withthreenewadmissionstoorphanagesforeveryonechildwholeft,donors
andlocalNGOsweregalvanizedtodesignacomprehensivesystemofservices(as
opposedtotherandomarrayofsmallscalepilotprojectswhichwerethensupported)
toaddressthemanyneedsoffamiliesandchildren,especiallyinlightoftheeconomic
hardshipcausedbyRomaniasdifficulttransitiontoamarketeconomy.

Governmentofficialswerefurtherinspiredtofindalternativestotheoldchild
placementcentersbecausethehighcostofmaintainingchildrenininstitutions($200
perchildpermonth)madecommunityalternatives,estimatedtobeonehalfto
twothirdsthecost,apreferablealternative.

13

IV.

TheAnswer:BuildingFamilyOriented,CommunityBased
Services(19962001)

Havingconfrontedtheimmediatecrisisofdesperatechildrentrappedin
orphanages,andhavingvastlyimprovedthesechildrenslives,theinternational
communityofdonorsfacedanewparadox:inordertomakeapermanentdifference,
wehadtodevelopasustainablesystemofcarethatdeflectedthemagnetismof
stateruninstitutions.

ThreegoalsguideddonorsworkingcloselywiththeRomaniangovernment
duringthesecondphaseofchildwelfarereformafter1996.Basedonchildprotective
servicemodelsinWesternEuropeandtheUnitedStates,reformaimedto:1)Keep
familiesandchildrentogether,providingfinancialassistanceorinfamilysupportand
optionssuchasdaycare,afterschoolcare,andcounselingservices;2)Phaseoutlarge
residentialinstitutionsinfavorofcommunityalternativesincludingadoption,foster
care,andsmallgrouphomes;and3)Deemphasizegovernmentinvolvementbesides
itsregulatoryandmonitoringfunction,movingmoreservicedeliverytoNGOsand
PrivateVoluntaryOrganizations(PVOs)wheneverpossible.

Coordinatingwithothermajordonors,theU.S.governmentsstrategybecame
moreclearlydefinedin1996.Helpingtoinitiateacomprehensivetransformationofthe
childwelfaremodelformacentrallycontrolledsystemmeasuredbydollarsandbodies
toasystemorientedtothewellbeingofeachchildrequiredawiderangeofactivities
onseveralfronts.Thesewerecenteredonfourobjectives:

Continuedevelopinghumanresourcesforbetterqualitycare
Promotedeinstitutionalizationandcommunityinvolvementbyimplementinga
continuumofsocialservicesavailabletoatriskfamilies
Assistingovernmentandadministrativereformsthatdecentralizeand
reorganizechildprotectionstructures
FosterNGOstodeliverservices

Asrapidlybecameclear,buildingasystemofcarecapableofreducingthenumber
ofchildrenininstitutionsisacomplexundertakinganywhere,especiallyacountrywith
severebudgetconstraintsandlimitedmanagementknowhow.

HumanResourceDevelopment:
Trainingnewsocialworkerscontinued
asthedemandformorespecialized
capabilityincreased.Universitytrainedsocialworkersfromthenewprogramsbegan
tomakeabigdifference.Newcurriculaandsocialworktextbookswerewrittento
emphasizecasestudiesandpracticalproblemsolving.By1999,some1,500had
graduatedand90%wereworkinginthefield.Today,900socialworkersare
graduatingfromuniversityprogramseachyear.

14

 CreatingtheRomanianFederationofSocialWorkers
andwritingthefirst
codeofethicsforsocialworkers.

Providingtrainingateverylevelofthesystem,
especially

tostaffofthelocal
DepartmentofChildProtectionandprojectimplementers,suchascase
managementtraining,andfosterparenttraininginordertoincreasesocialwork
skillsandtoexpandconceptsofpermanencyplanningforchildren.Morethen3,000
officialshadbeentrainedbytheUSGby1999.

Makingassessmentandpermanencyplanningforchildren
ininstitutionshas
standardprocedure.

Providinginstitutionalstaffwithtrainingforotherjobs,especiallyin
alternativeprograms
asawaytomitigatestaffunemploymentwhichactsasa
barriertodecreasinginstitutionalization.

Trainingmaternalassistants
(fostercareproviders)intheirrolesand
responsibilities

Incorporatingfamilymedicineintocurricula
atuniversitylevelmedicalschools
sothatfamiliesreceivepreventivehealthinformation,especiallypreandpostnatal
careandknowledgeabouthowtopreventunwantedpregnancies.

BuildingaContinuumofServices:
ShiftingUSAIDschildwelfarestrategy
todevelopingcomprehensive
communitybasedsocialservicesthatmobilizeresourcesinordertopreventchild
abandonmentandtoassistfamiliesatriskinthreetargetcounties,aswellas
neighboringones.Thepurposeofstartingwithpilotcounties(Iasi,Cluj,and
Constanta)wheretherewerehighnumbersofinstitutionsandabandonedchildren
wastodemonstratethefeasibilityofthisnewapproachtolocalofficials.

Demonstrating
thatcommunitybasedsocialservicesarelessexpensivethan
maintainingacostlygovernmentrunchildwelfaresystem.

Focusingneweractivities
onassistancetofamiliesatrisk,preventionofchild
abandonment,andassociationwithfamilyplanningservices.Preventionand
interventionservicessuchasdaycarecenters,maternalshelters,fosterhomes,
parentsupportgroups,healtheducation,havebeendeveloped.Lifeskillstraining
(shopping,workskills,laundry,selfcare)for1618yearoldsabouttograduate
fromtheinstitutionalsystem,enabledthemtofunctioninthecommunity.

Encouragingthetransitionofchildplacementcentersto
smaller,more
familylikeunitswithinthelargerinstitutionsasanintermediatestepin
deinstitutionalization
.

15

 Counselingpregnantwomen
topreventchildabandonmentandtoreferthemto
tofamilyplanningservices
.

Pioneeringtheideaoftemporaryfosterparenting
asabridgebetween
institutionalizationandadoptionorfamilyreunification.

CreatingfostercareasanoptionforchildreninfectedwithHIV.

Sponsoringworkingconferencestodevelopstandardsandproceduresfor
newsocialservices.
Forexample,theUSGsponsoredRomaniasfirstfostercare
guidelinesinordertoprovideprotectionforchildrenplacedinfosterhomes.

GovernmentReform:
EncouragingthecreationofaCabinetlevelofficeforChildProtection
whichwasaccomplishedbyareformmindedRomanianGovernmentthattookoffice
inearly1997.

SigningMemorandaofUnderstanding(MOU)withlocalgovernment
officials
whohaveindicatedawarenessofandcooperationindevelopinga
comprehensivecommunitybasedcontinuumofchildwelfareservices

withthe
intentionoftakingoverresponsibilityfortheseservices.

Supportingdecentralizationindecisionmaking
solocalauthorities,closerto
atriskfamiliesandtheirchildren,wouldhavemorecontroloversocialalternatives
andchildwelfarebudgets.

In1997,theGORcreatedtheDepartmentofChildProtection(DPC).Ministry
levelreformbegan.TheDPClaunchedthereformprocess,aimedatcreatingand
implementingthearrayofalternativeformsofcareforchildrenrecommnededby
internationaldonors,andreinforcingtheideaofacommunitybasedsystemforchild
protection.

TheDepartmentofChildProtectionmadesignificantchangestothelegislative
frameworkandthechildprotectionsystem.Thechangesincludedbothdecentralization
ofthedecisionmakingbodiesinvolvedinchildprotectionandinclusionofconcepts
outlineintheU.N.ConventionontheRightsoftheChild.

Inthisprocess,onlytheinstitutionsforhealthychildrenwereinitiallyinvolved.
Otherinstitutions,undertheauthorityoftheMinistryofEducation,MinistryofHealthor
StateSecretariatforPeoplewithHandicapsremainedalmostunchanged.Imagesfrom
theseinstitutionswereoftenusedbymediaorbyotherinterestedgroupstoshowthat
nothinghadchangedinthelivesofRomaniaschildren.

In1999,anotherreorganizationwasrecommendedbytheinternational
communityandtheNationalAgencyfortheProtectionofChildrensRights(NAPCR)
16

wascreatedsothattherewouldbeonesingleauthoritywithresponsibilityforall
childreninneedofprotectionincludingdisabledchildrenandchildrenwithspecial
educationneeds.InAugust2000,thebuildings,equipmentandchildrenwere
administrativelytransferredtothissingleagencywhichshouldmakeitpossibletoreach
manychildrenpreviouslyunaffectedbythecommunitybasedservicesprovidedunder
theDPC.

In1997,therewasstrongpolicymovementtowarddecentralization,moving
moreresponsibilitydowntothecountyandlocallevel.Childwelfarewasoneofthefirst
sectorstobedecentralized,andin1998countyleveldepartmentsforchildprotection
werecreatedwithimportantauthorityovercountyinstitutionsandservices.
Unfortunately,fiscaldecentralizationaccompanythedevolutionofpower.Localofficials
weresuddenlyresponsibleforchildwelfareservicesthattheycouldnotfundanddidnt
reallyunderstand.Withrisingunemploymentandashrinkingtaxbase,localofficials
werefacedwithimpossiblechoices,suchaswhethertofixroadsorfeedchildrenin
placementcenters.

Asignificantcrisisinchildprotectionfundingemergedin1999:Aggragate
expendituresforchildprotectionatthestateandlocalleveldecreasedinrealtermsin
38outof42counties.Twentytwocountycouncils,morethanhalfthetotal,reduced
expendituresforchildprotectionbymorethan30percentinrealtermsin1999.The
internationaldonorshadtorushtotherescue.EuropeanUnionfundsthatwere
originallyprogrammedtosupportchildwelfarereformwereredirectedtohumanitarian
assistance.Theredirectedfundsavertedlocaldisasterwhilederailingsustainable
reform.

TheUSGcontributed$14millioninbalanceofpaymentsfundstohelpthe
Romaniannationalgovernmentshiftresourcesandcompensateforlocalshortfalls.

WhiletheinternationalcommunityextractedapledgefromtheGORthatsucha
lackofbudgetplanningwouldneveragainthreateninstitutionalizedchildreninthe
future,theexperiencedemonstratedhowprecariousthenewcontinuumofcaremodel
is,ifitdependsonoverstretchedlocalbudgetsforimplementation.

NGODevelopmentandPublicPrivatePartnerships:
Progressinchildwelfarecouldneverhavebeenaccomplishedwithoutthe
extremelyeffectiveworkingrelationshipsdevelopedbetweentheU.S.governmentand
nongovernmentorganizations(NGOs).TohelpincreasethecapabilityofRomanian
NGOs,theUSGreliedonnumerousAmericanbasedNGOsandPrivateVoluntary
Organizations(PVOs)workinginRomaniatoshowtheway.

HundredsofPVOsarecurrentlyactiveinchildprotection.PVOsarepresentinall
theRomaniancounties,contributingtheirknowledgeandresourcestoreform.
Legislationthatpassedin1997createdtheopportunityfor
sustainable
collaboration
betweenpublicandprivateareasofchildprotection.Itdescribedthetermsof
17

collaborationbetweentheseentitiesandcreatedthenecessarylegislativeframeworkto
ensurethatthesecollaborativerelationshipscouldbeongoing.

BasedontheprinciplesstatedintheNationalStrategyforChildProtection,the
countieselaboratedtheirownstrategiestoimplementreform.PVOsarepartnersinthe
implementationoflocalstrategies.

Therefore,mostofthePVOshavesignedcollaborationagreementswiththelocal
DirectoratesforChildProtectionatthecountylevel.Theideaoftheseagreementsisto
ensurethatthePVOsactivityisconsistentwiththecountysstrategyinchildwelfare.
Thestateisnolongertheonlyplayer,butratherapartnerandacoordinatorin
providingservicesforchildreninneedofprotection.

Incredibleimprovementsinchildrenslivesandalotoftheinnovativeprograms
thathavebeencreatedcanbeattributedtoprivateefforts.Privateorganizationsare
currentlyinvolvedinavarietyofactivities,rangingfromprovidingdirectservicesto
communitydevelopment.PVOsmaybelargeorganizationsorsmall.Therearealarge
numberofactiveorganizationsandaseffortsbecomemorecoordinated,greatereffects
areseen.ThepublicprivaterelationshipisencouragedinRomaniatomeetthegreat
unmetneeds.
Theinfluenceplayedatalllevelsbythepoliticalagendaandpersonalities
involvedindecisionmakinghassometimesslowedthereformprocess.Theresponse
fromRomaniancivilsocietyorganizationsisstilltooweaktobalancetheseinfluences.
PVOsmustplayamoreactiveroleinorganizingtheircommunity.Ifbettertrainedand
organized,theseorganizationsmayhavethepower,knowledgeandmotivationto
becomearealvoiceforthechildrenwhoselivestheyareworkingtoimprove.
InSeptember1999,morethan100activeAmericanorganizationsrespondedto
theU.S.Embassysinvitationtogatherallprivatevolunteerorganizationsinvolvedin
childwelfare.Theideaofhavingregularmeetingswiththepurposeofexchanging
informationandexperiencewaswellreceivedandthegrouphasevolvedintothe
ProChildnetwork,includingamailinglistthatallowstheexchangeofinformation,and
knowledge.AlistofProChildorganizationsisattachedasanannextothisreport
[?YES?]
Overall,thereformwavethatbeganin1996

despitesomeserioussetbackssuch
asthelocalbudgetcrisiswhichrevealedtheobviousmistakeoftryingtoimplement
majorstructuralreformtooquickly

madeimportantinroadsinreorientingthechild
welfaresystem.

Twoillustrativestatisticscrystallizesthetrend:in1997,over44,500children
livedinplacementcenters.In1999,thatfigurehaddropped29percentto31,500.
Meanwhilethenumberofchildrenreceivingfamilybasedassistancerosefrom11,900
to19,400,anincreaseof63percent.

18

19

V:

WhereWeandtheChildrenStandNow

ConditionsinRomaniaschildplacementcenterstodayhavevastlyimprovedover
their1990pointofdeparture.However,conditionsremainunevenandsomeofthe
moreisolatedinstitutions,especiallythosecaringfordisabledchildren,havemade
fewerimprovements.
A.

TheChildren

Over170,000childrenwereestimatedbyUNICEFtobeininstitutionsin1990.In
thepastthreeyearswiththedevelopmentofanationalstrategytoreduce
institutionalization,therehasbeenasubstantialdecreaseinthenumbersofchildren
livingininstitutions.1997statisticsshowatotalof98,872or1.7%ofthepopulation
aged018yearsofage,livinginresidentialfacilities.Morethan55,000ofthemwerein
institutionsforchildrenwithdifferenttypesofdisabilities,institutionsthatwerenot
includedinthefirstwaveofthereform.Currentestimatesincludingallthechildren
livingininstitutionsare65,000withanadditional8,654receivingalternativeformsof
care.
Therehasbeenadramaticincreaseintheuseofkinshipcareandfostercare
withalmost30,000childrennowlivingwithrelativesorsubstitutefamilies.Whilefoster
careisnotidealfromtheperspectiveofachievingapermanenthomeforchildren,itis
animprovementoverlargescaleinstitutionalsupervision.
Currenteffortsbyinternationaldonorsareconcentratingonseveralkeygroups
ofvulnerablechildrenwiththegreatestneed.Thesituationofthesegroupsisdescribed
below.

EconomicallyDisadvantaged:
Themajorityofchildrenininstitutionshaveparents.Economiccircumstancesin
Romaniahavelefttoomanyfamilieswithoutthemeansforprovidingevenbasiccare
fortheirchildren.Withoutamenitiessuchasfoodandshelter,familiesstillresortto
placingtheirchildrenininstitutions.Itisconservativelyestimatedthat25%ofchildren
currentlyplacedininstitutionsarethereforeconomicreasons.

Asmallamountoffinancialhelpisneededtohelpfamiliesmaintaintheirchildren
athome,avoidingtheperilsofinstitutionalization.AUSAIDfundedproject,offering
emergencyfinancialassistance,hashelpedover5,000families.Itisestimatedthat$30
permonthenablesafamilytokeepachildinsteadofgivingcustodytothestate.While
financialproblemsoftencreateriskforafamily,itisnotusuallythesolecauseof
abandonment.

ChildrenwithDisabilities:

AccordingtoarecentstudybyUNICEF,theMinistryofHealthandtheInstitute
fortheProtectionofMotherandChild,57%ofplacementsininstitutionsareattributed
toinsufficientservicesforchildrenwithspecialneeds.Familieswithoutaccessto
specializedservicesstruggletokeepdisabledchildrenathomes,evenasmanydoctors
referthemtoinstitutionsforthedisabled.
20

UndertheMinistryofEducation,childrenwithanylearningdisabilities,
psychologicalretardation,orsensorialdeficienciesrequiringspecialeducationare
referredtospecializedinstitutions.Approximately55,000childrenarehousedand
attendclassesinspecialeducationunits.Thoughnotconsideredorphansorabandoned
bytheirfamilies,thesechildrenareoftencountedaschildrenininstitutions.

HIV/AIDS:
RomaniahasthehighestpercentageofpediatricHIV/AIDScasesinEurope.In
1997,59.1%ofalltheEuropeanchildrenwithHIV/AIDSresidedinRomania.Romania
isuniqueinthatthemajorityofAIDScaseshavebeencausedbytransmissionfrom
taintedbloodandinstruments.ThenumberofpeoplewithHIV/AIDSis6,117and87%
arechildren.Drugusehasnotbeenasignificantmeansoftransferenceasithasin
neighboringcountries.NumerousPVOsworkintheareaofHIV/AIDS.USAIDis
currentlyfundingactivitiestohelpdevelopcommunityservicesforfamilieswithchildren
whohaveHIV/AIDS.

YoungPeopleEmancipatingfromInstitutions:
Recentstatisticsshowthatapproximate11%ofthepopulationininstitutionsis
betweentheagesof16and26.Bylaw,theseyoungadultsareentitledtoprotectionin
institutionsuptotheageof18iftheyarenotattendingaschool,andupto26ifthey
arestillstudentstakingdailycourses.Manyofthemdonothavearelationshipwith
theirfamiliesandnosocialprogramexistswithinthecurrentstructuretotransitionthis
groupfromlifeintheinstitutiontoeverydaysociety.Theseyoungadultsneedtraining
inbasicskillstoliveindependently,suchasmoneymanagement,hygiene,employment
skills,nutritionandhealthcare.TheU.S.governmenthasfundedpilotprojectsin
independentlivingandlifeskills.Thedevelopmentofstandardsforthisserviceis
underway.Manyhumanitariangroupsmakelifeskillsprogrammingpartoftheiroverall
assistance.

RomaPopulation:
TheRomapopulationisamongthemostmarginalizedgroupinRomaniaandisa
distinctclientofthechildwelfaresystem.Accordingtofieldsurveysofchildplacement
centers,Romaparentssometimesplacetheirinfantsininstitutionsduringtheiryounger
yearswhentheRomastransientlifestylemakesitmoredifficulttocareforinfants.As
theyounggrowandbecomemoremobile,parentsoftenresumetheirresponsibilities
oncemore.OlderRomachildrenaresometimessenttothestreetstobegandarenot
giventheopportunitytoattendschool.Ahighrateofschooldelinquencyisassociated
withthisgroup.

ThereisuncertainlyaboutthenumberofRomainRomania.Theofficialnumber
is400,000(Therewere408,923registeredinthe1992census,representing1.85%of
thepopulation),whiletheRomacommunityclaimsbetween2and3millionsmembers.
TheEuropeanUnionCommissionestimatedin1997,thattherewere1.5millionRoma
andhasnotrevisedthisestimate.
21

TheEuropeanParliamentstatedinSeptember2000thatitisnecessaryfor
RomaniatoimprovethesituationoftheRomaandtoeliminatediscriminationagainst
thembycreatingspecialaffirmativeactionprogramsforthepurposeofensuringtheir
fullequalityandintegration.

StreetChildren:
StreetchildrenareavisiblereminderofthechildprotectionproblemsinRomania.
Despitetheirhighvisibility,severalstudieshaveconcludedthattheyareactuallya
smallpopulation.Oneofthedilemmaswithstreetchildrenisthattheirvagabond
lifestylemakesthemdifficulttocount.SavetheChildrenstudiedthispopulationand
estimatedthatthereare:
Approximately400450inBucharestlivinginthestreet
Around1,0001,500inBucharestduringthesummer(includingpermanent
streetchildrenandtransientstreetchildren)
About2,500countrywideinthesummer.

Therearemanyorganizationsprovidingservicestostreetchildren,especiallyin
Bucharest.Theseorganizationsareattemptingtosharedataonthechildrenandhave
developedasocialhistoryformtocollectchildspecificinformation.Thereare
approximately250childrenregisteredinthedatabaseforBucharest.Around320places
areavailableforstreetchildreninBucharestbothinresidentialcentersanddaycenters.
Thereisagreatneedfornightasylumsforstreetchildren.Citieswithstreetchildren
includeBucharest,Craiova,Timisoara,Iasi,Suceava,Galati,Constanta,and
TarguMures.

Therearenoantidrugprogramsforstreetchildrenandtherearenoevaluationsof
theirmentalhealth.However,unofficialinformationsuggeststhatasmanyas8085%
ofthepermanentstreetchildrenuseAurolac,avolatilesubstanceusedinthechemical
industry,asadrug.

B.
MajorDonorsandInternationalFinancialInstitutions

Donorcoordinationinchildwelfareisconsistent,influential,andcoordinatedwith
Romaniangovernmentpriorities.Inchildwelfare,theEuropeanUnionprovidednearly
$20millionfortechnicalassistanceandtosupportcountylevelprojectssupportingthe
NationalAgencyfortheProtectionofChildrensRights(NAPCR)strategy.TheWorld
Banks$5millionloanwasdelayedbutisnowbeingdispersed,withnoplanforfuture
childwelfareloans.TheWorldBankisactiveinprovidingsocialassistanceand
promotingminimumwageguarantees,whichgreatlyeffectschildwelfare.UNICEF
continuestoplayakeyroleinfacilitatingchildwelfarepolicydevelopment,dispersing
approximately$1millionannually.

EuropeanUnion:
22

AchievingasystemtoinsuretherightsofthechildiscrucialifRomaniaisto
becomeapartoftheEuropeanUnion.Whileinternationaldonorshavegreatly
influencedthedevelopmentofchildwelfarereform,nonehashadasgreataneffectas
theEuropeanUnion.

RomaniaseeksaccessiontotheEUin2007.Anannouncedsinequanonfor
admissiontotheEU,aboveandbeyondadoptionofthe
acquiscommunitaire
,is
improvementinthechildwelfarearena.Romaniahascommittedtohavingadequate
budgetforchildreninthecareofthestateandwasspurredbytheEUtoformthe
newlycreatedNAPCR.Further,RomaniaissubjecttocontinuedmonitoringbytheEUin
itsdevelopmentofabetterchildwelfaresystem.Thissetsthestageforan
unprecedentedadvanceinchildwelfarereform.

EUisfundingpartofanationwidepublicawarenesscampaignthatwillbe
designedbytheNAPCR.Themajorityofthe$25MillionEurocontributionwillfocuson
modelprogramsimplementedbycounties.

TheEuropeanUnionandtheEuropeanParliamenthavebeenfirmdemanding
thatchildrensconditionsbeimproved.Theyhaveexertedpressureforincreasesinthe
budgetforchildwelfareandforRomaniatoberesponsibleforfundingthebasicneeds
ofchildreninthecareofthestate.Becauseofthegreatadvantageswhichmembership
intheEuropeanUnionwouldbringtoRomania,thisisacrucialincentivetocomplywith
EUguidelines.
WhiletheEuropeanUnionhasplayedaleadingroleinfacilitatingchildwelfare
reforminRomania,theconsistencyandcoordinationoftheothermajordonorshaslent
supportandenhancedthethrustofreforminchildwelfare.Thegreateststrideshave
beenandwillcontinuetobemadeincoordinatedeffortsamongdonorsandtheGORin
accordancewiththeprinciplesdevelopedintheGORstrategy.
UNICEF:
ForthenextfouryearsUNICEFwillconcentrateassistanceeffortsinthreeareas:
1)Childrenwithspecialneeds,2)Childrenlivinginthestreetsand3)Communication
forchildrensrightsprotection.UNICEFwillpreventinstitutionalizationofspecialneeds
childrenbydevelopingalternatives,bystrengtheningservicesforfamiliesatriskandby
promotingintegrationofchildrenwithdisabilitiesintothecommunity.Itwillstrengthen
methodsofintegratingchildrenleavingtheinstitutions.

WorldBank:
AWorldBankloanfor$5Millionhasbeencommittedinlargepart.Themajority
oftheWorldBankLoanhasbeenallocatedtosubprojectsjointlyapprovedbythe
NAPCRandWorldBankaccordingtothegovernmentstrategy.Thesmallamountof
remainingfundsmaybeprogrammedforamonitoringandevaluationeffort.Nonew
loanisanticipated.

D.
ObstaclesToProgress
23

SomuchhasbeenachievedintheRomanianChildWelfareSystem.These
reformshavecreatedaseriousbasisforamodernapproach,emphasizingtheroleof
thefamilyandcommunityinmeetingtheindividualneedsofchildren,withprofessional
supportavailabletothem.

NoonetodayquestionsthatthereformprocessisrealinRomania.Howquickly
Romaniacancreatingequitableconditionsnationwide,andimplementanauthentically
comprehensivecontinuumofcareremainstobeseen.

TheanswerisinthehandsofcurrentpoliticalplayersandlocalNGOSandin
theircommitmenttoworkingtogether,inaconstructivemanner,towardremoving
existingobstaclestoprogress.AslongastheGORanditsdomesticpartnerssincerely
moveaheadincompliancewithRomaniasnationalstrategyforchildwelfare,
internationalpartnerswillremainattheirside.

Thefollowingareashavebeenidentifiedasrequiringmoresustainedand
coordinatedeffort.

InaccurateData:
Areliabledatasystemtotrackthechildrenandfamiliesreceivinggovernmental
servicesisanessentialstepinchildwelfarereform.In1990,170,000orphanswere
reportedaslivinginRomaniaslargeinstitutions.Overthelasttenyears,discrepancies
inreportshavevariedfrom62,000to300,000childrenlivingininstitutions.Reportson
age,gender,andfamilyrelationsofabandonedchildrenareequallyunreliable.Progress
cannotbemeasurednorcantargetedplansbeeffectivelydevisedwithoutaccurate
data.

In1998,legislationwaspassedrequiringthemonitoringofchildprotection
servicesby,atthattime,theDepartmentofChildProtection,now,theNAPCR.An
initiativewasundertakentodevelopasystemthatprovidesdetailedinformationabout
childrenreceivingservicesandabouttheservicesthemselves.Thoughamarked
improvementfromthepreviouslycollecteddata,theNAPCRdataarenotprecisebut,
still,estimates.

NeedforPermanencyPlans:
ChildrenunderthecareofthestateinRomaniahavenoplantoguidetheirway
toapermanentfamily.IntheU.S.,permanencyplansdetailingthenecessarystepsto
bringeachchildindividuallytoapermanentsituationaremandatory.Theseplans
specifywhichactionsandactivitieswilltakeplace,bywhomandinwhattimeframe.At
theminimum,apermanencyplanshouldincludetheresponsibilitiesforeachperson
involvedwithhelpingthechildachievehisorherplani.e.thefostercaregiver,the
socialassistantfortheDirectorate,thechild,andthechild'sparents.Ifparentsdonot
followtheplansatisfactorily,terminationofparentalrightsshouldbeanoptionofthe
specializedservicesandthecourts.USAIDisworkingwiththeGovernmentofRomania
24

tolessentheprevalenceofchildrenkeptininstitutionsindefinitelybecauseparentsare
unwillingtoassumeparentaldutiesyetwillnotvoluntarilyrelinquishtheirparental
rights.Traininginpermanencyplanningisongoing.

PoliticalWill:
Althoughseveralcountieshavereportedgreatsuccesses,manylocalcounty
councilmembersarenotinfavoroftheNAPCRstrategythatfocuseson
deinstitutionalizingchildren.Financialconcernssuchasincreasedunemploymenthave
influencedlocalgovernmentsunwillingnesstoparticipateinthecurrentnational
programs.

Politicalwillprovedtobeadeterminantforthesuccessofthenewlyinitiated
reform.TohelpbuildpoliticalwillUSAIDinitiatedaverysuccessfulactivity.Through
WorldLearning,selectedkeyplayersinchildprotection(nationalleaders,county
secretariesinchargeofchildwelfare,andnewlyappointeddirectorsoftheCounty
DepartmentsforChildProtection)wereofferedstudytoursintheUnitedStatesto
witnessU.S.programswhichrepresentalternativestoinstitutions.Theyobserved
modelprogramsfromfederal,stateandcountygovernmentsandpartnershipsbetween
publicandprivateentities.

Thistrainingbecameadeterminantofchange.CountyCouncilSecretaries,with
noadditionalassistancebeyondthetrainingfromtheU.S.,madesubstantialprogressin
childwelfaresystemreform.Notablechangesweremadeinseveralcounties:
institutionswereclosed,alternativescreatedandtheinstitutionalpopulationreducedas
aresultofstrongpoliticalwill,NGOcoordination,andCountyCouncilcooperation.

PublicAwareness:
AstudybytheCenterforResourceandInformationforSocialProfessions
(CRIPS)in1999identifiedchildprotectionmanagersandemployeesasoneofthe
groupsmostinneedofapublicawarenesscampaign.Theseinstitutionworkersoften
failtounderstandorsupportthenationalstrategyonchildprotection.Fearofunfamiliar
programsorlossofemploymenthinderstheiracceptanceofnewprograms.Inthe
transitionfromafullemploymentCommunistsystem,theselifelongchildcareworkers
arehesitanttoembracechangewithouttheassuranceofalternativeemployment
options.

Parents,toooften,continuetoviewstateinstitutionsasaconvenientboarding
schoolforfamiliesinneed.Localgovernmentssupporttheplacementsofchildrenin
thesecenterswithoutconsideringthesocialcosts.Manyfamilies,especiallyintherural
areas,continuetomistakenlybeliefthatthestateismorecapableofraisingtheir
children.

Majordonors(USAID,EuropeanUnion,UNICEFandWorldVision)coordinated
byNAPCRarecurrentlycollaboratinginapublicawarenessprogramtoinfluencepublic
25

attitudesandbehaviors,tobuildfamilyconfidence,andtoeducatetargetgroupsabout
thealternativestoinstitutions.

Corruption/InternationalAdoption:
ChildwelfareinRomaniacannotbediscussedwithoutmentioninginternational
adoption.Lucrativeinternationaladoptionscreatedisincentivestoreintegratechildren
withtheirfamilies.Institutionsattempttomaintainpoolsofchildrenforinternational
adoption.Aportionofthesechildrenarenotultimatelyadoptedandremaininchild
placementcenters.[#s?]

Intheinternationaladoptionarena,thepointsystemandprocessbywhich
childrenbecomeavailableforadoptionisslowandunpredictable.Inefficiencieswithin
thesystemcreateanenvironmentwhereofficialdiscretioncanbe,andis,influencedby
bribes.USAIDisintheprocessofstudyingandmakingrecommendationsfor
improvementofthecurrentsystemofinternationaladoption.

Nonetheless,itisimportanttoacknowledgethatinternationaladoptionscanbe
supportedwithoutdiscouragingreintegrationanddomesticadoption.Themost
effectivewaytosupportinternationaladoptionsisbyinsuringthatthesystemisfree
fromabuseandfraud.

LegislativeFramework:
Currentchildwelfarelegislationinsufficientlyaddressesneedsandissues.Itis
inconsistentandnotcomprehensive.Itispoorlyunderstoodandindifferentlyenforced.
Areassuchasabuseandneglectinchildwelfarearenotcoveredbylegislation.Laws
needrevisioninotherareassuchasthestatesrighttoterminatetheparental
relationshipofparentswhoabandontheirchildrenandhavenoongoingrelationship
withthechild.Theentirelegislativeframeworkwouldbenefitfromacomprehensive
reviewandrevision.

FundingforSocialAssistance:
Romaniahasdesignatedsubstantialsocialassistancetochildren,fromachild
allowancetoschoolscholarshipfundstobeusedforschoolsupplies.Despitethe
allocationofthesefunds,accessingthemisoftendifficult.Eachsmallpotofmoney
requiresadifferentbureaucraticapplicationandresponse.TheWorldBankandMinistry
ofSocialProtectionarecurrentlydevelopingaprogramthatwouldstreamlinethis
process.

SocialWorkProfession:
Mostrecently,afifthyearMastersDegreeinSocialWorkwithaspecialfocus
onmanagementandpolicy,andaPh.D.programhavebeenintroducedatthe
UniversityofBucharest.Currently,tenstaterunandprivateprogramsaregraduating
approximately900professionalsayear.

26

Althoughinteractiveteachingmethodsandmeaningfulpracticesfacilitatethe
integrationoftheoryandpractice,Romanianprofessorshavebeenslowtochangethe
traditionaldidacticstyle.Practicaldevelopmentlagsbehindcurriculumdevelopment.

TheGORanddonorsrecognizetheimportanceofcontinuingeducationforsocial
workers.Manysocialworkersareyoungandinexperiencedandthesystemtheywork
underisimmatureandexperimental.Acomprehensivesystemcontinuestodevelop.

Inadequatefundingforchildwelfare:
Asaresultofthefiscaldecentralizationmeasuretakenin1998,aggregate
expendituresforchildprotectionatthestateandlocallevelsdecreasedsignificantly.
Theselevelsremainlow.Technicalassistancetolocalgovernmentinbudgetplanning
andforecastingisneededtoassuretheadequacyandstabilityofsocialwelfare
budgets.

27