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Republic of Moldova IMF Country Report No. 21/167 REPUBLIC OF MOLDOVA TECHNICAL ASSISTANCE REPORT — July 2021 COUNTRY GOVERNANCE ASSESSMENT This technical assistance report on Republic of Moldova was prepared by a staff team of the International Monetary Fund. It is based on the information available at the time it was completed in December 2020. Copies of this report are available to the public from International Monetary Fund • Publication Services PO Box 92780 • Washington, D.C. 20090 Telephone: (202) 623-7430 • Fax: (202) 623-7201 E-mail: [email protected] Web: http://www.imf.org Price: $18.00 per printed copy International Monetary Fund Washington, D.C. © 2021 International Monetary Fund ©International Monetary Fund. Not for Redistribution 1 TECHNICALTECHNICAL ASSISTANCEREPORT REPORT REPUBLIC OF MOLDOVA Country Governance Assessment JULY-DECEMBER 2020 Prepared by: Ioana Luca, Kathleen Kao, Maksym Markevych, Yugo Koshima, Pasquale Di Benedetta, Kors Kool, Michael O’Grady, Hans Weenink, Katharine Seal AuthoringAuthoring Departments: Departments: LegalLegal Department Department FiscalFiscal Affairs Affairs Department Department MonetaryMonetary and and Capital Capital Markets Markets Department Department ©International Monetary Fund. Not for Redistribution 2 DISCLAIMER The contents of this report constitute technical advice provided by the staff of the International Monetary Fund (IMF) to the authorities of Moldova (the “TA recipient”) in response to their request for technical assistance. This report (in whole or in part) or summaries thereof may be disclosed by the IMF to IMF Executive Directors and members of their staff, as well as to other agencies or instrumentalities of the TA recipient, and upon their request, to World Bank staff, and other technical assistance providers and donors with legitimate interest, unless the TA recipient specifically objects to such disclosure (see Operational Guidelines for the Dissemination of Technical Assistance Information). Publication or Disclosure of this report (in whole or in part) or summaries thereof to parties outside the IMF other than agencies or instrumentalities of the TA recipient, World Bank staff, other technical assistance providers and donors with legitimate interest, shall require the explicit consent of the TA recipient and the IMF’s Legal Department. ©International Monetary Fund. Not for Redistribution 3 CONTENTS GLOSSARY ___________________________________________________________ 5 PREFACE ________________________________________________________________7 EXECUTIVE SUMMARY ________________________________________________ 8 I. INTRODUCTION ____________________________________________________ 13 II. RULE OF LAW _____________________________________________________ 15 A. Main Rule of Law Issues in Moldova ______________________________________ 16 B. Organization and Governance of the Judiciary________________________________ 18 C. Effectiveness of Protection of Economic Rights ______________________________ 24 III. ANTI-CORRUPTION FRAMEWORK__________________________________ 28 A. Corruption Risks, Country Context and Perception Indicators ____________________ 28 B. Anti-Corruption Legal Framework ________________________________________ 31 C. Anti-Corruption Institutional Structure _____________________________________ 35 D. Asset Declaration Regime ______________________________________________ 40 E. Implementation of Anti-Corruption Frameworks and Its Effectiveness ______________ 42 IV. AML/CFT ____________________________________________________________47 V. PUBLIC FINANCIAL MANAGEMENT _________________________________ 52 A. Budget Preparation and Execution ________________________________________ 52 B. Asset and Liability Management__________________________________________ 58 C. Fiscal Reporting and Audits _____________________________________________ 66 VI. SOE GOVERNANCE________________________________________________ 69 A. Institutional Arrangements ______________________________________________ 69 B. Corporate Governance of SOEs __________________________________________ 72 VII. TAX ADMINISTRATION ___________________________________________ 77 A. Tax Policy Context and Perception Indicators ________________________________ 77 B. Governance Framework ________________________________________________ 79 C. Staff Integrity Assurance and Internal Controls _______________________________ 79 D. New Criminal Investigation Competence for STS _____________________________ 81 VIII. CENTRAL BANK GOVERNANCE ___________________________________ 82 IX. FINANCIAL SECTOR OVERSIGHT ___________________________________ 84 A. Mandate and Objectives ________________________________________________ 85 B. Independence and Accountability _________________________________________ 86 C. Enforcement Powers and Practices ________________________________________ 87 D. Licensing and Change of Control _________________________________________ 89 E. Corporate Governance and Related Parties __________________________________ 91 F. AML/CFT __________________________________________________________ 92 ©International Monetary Fund. Not for Redistribution 4 TABLE 1. Priority Recommendations_________________________________________________10 BOXES 1. SCM Boards ________________________________________________________ 19 2. Criminalization of Illicit Enrichment in Moldova _____________________________ 31 3. Examples of Good Practices for the Good Road Moldova Program________________ 59 4. Examples of Irregularities of Projects Financed from the Ecological Fund __________ 60 5. Examples of Irregularities in PPPs________________________________________ 61 6. Examples of Irregularities in Lease of Local Governments’ Lands ________________ 65 7. STS-related Integrity Perception Surveys___________________________________ 78 FIGURES 1. Corruption Perception Index ____________________________________________ 30 2. WGI Control of Corruption Score ________________________________________ 30 3. Corruption Investigations Started by APO __________________________________ 43 4. Corruption Investigations Started by NAC __________________________________ 43 5. APO Corruption Cases Sent to Court ______________________________________ 44 6. Convictions in Corruption Cases _________________________________________ 45 7. Sources of APO Money Laundering Investigations ___________________________ 51 8. Linkage between SIMF and Other Systems _________________________________ 57 ANNEXES 1. Full List of Recommendations___________________________________________ 94 2. List of Meetings with Officials and Stakeholders ____________________________ 106 3. Bibliography_______________________________________________________ 107 ©International Monetary Fund. Not for Redistribution 5 GLOSSARY AML/CFT Anti-money Laundering and Combating the Financing of Terrorism APO Specialized Anti-Corruption Prosecutor's Office BCBS Basel Committee on Banking Supervision BCP Basel Core Principles for Effective Banking Supervision CARA Criminal Assets Recovery Agency CC Criminal Code CDD Customer Due Diligence CoE Council of Europe CTIF Center for Information Technology in Finance EBRD European Bank for Reconstruction and Development EDD Enhanced Due Diligence EU European Union FATF Financial Action Task Force FIU Financial Intelligence Unit FSB Financial Stability Board FSAP Financial Sector Assessment Program FSO Financial sector oversight GRECO Group of States against Corruption ICJ International Commission of Jurists JSC Joint Stock Companies KPI Key Performance Indicators LRCM Legal Resources Centre of Moldova LT Long Term MFA Macro-Financial Assistance agreements ML/FT Money Laundering and Terrorist Financing MOE Ministry of the Economy and Infrastructure MOF Ministry of Finance MOJ Ministry of Justice MT Medium Term MONEYVAL Committee of experts on the evaluation of anti-money laundering measures and the financing of terrorism NBM National Bank of Moldova PFM Public Financial Management PIE Public Interest Entities PPA Public Property Agency S/MT Short to Medium Term SOE State Enterprises SPCSB Office for Prevention and Fight Against Money Laundering ©International Monetary Fund. Not for Redistribution 6 ST Short Term STS State Tax Service TA Technical Assistance TI Transparency International UNCAC United Nations Convention Against Corruption UNDP United Nations Development Program USAID United States Agency for International Development ©International Monetary Fund. Not for Redistribution 7 PREFACE In response to a request from the authorities of Moldova, a team organized by the IMF’s Fiscal Affairs (FAD), Legal (LEG) and Monetary and Capital Markets (MCM) Departments conducted a country governance assessment of Moldova during the period July 24-August 7, 2020. (The “mission”) The Moldova governance assessment is being carried out according to the IMF’s Framework for Enhanced Fund Engagement on Governance Issues approved by the Executive Board in April 2018. The team consisted of Ms. Ioana Luca (head), Ms. Kathleen Kao, Mr. Maksym Markevych, Mr. Pasquale Di Benedetta, Mr. Hans Weenink (all LEG), Mr. Kors Kool, Mr. Michael O’Grady, Mr. Yugo Koshima (all FAD), and Ms. Katharine Seal (MCM). Given the travel limitations related to the COVID-19 pandemic, the team conducted virtual meetings and undertook an extensive desk study to reinforce its findings. The mission met with a wide range of government and central bank officials, multilateral donors, private sector and civil society representatives. The team wishes to express its thanks to the authorities
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