Housing Policies in Cluj-Napoca: Evaluation of the Rent Support Program and Its Impact on Vulnerable Communities

Abstract

This study explores housing policies in Cluj-Napoca, focusing on the effectiveness of the rental support program and its effects on vulnerable communities, especially those in marginalized areas such as Pata Rât. By analyzing data from local council decisions, focus groups and interviews with beneficiaries, the benefits and limitations of the current policy are identified. The study highlights the short-term benefits of the program, such as housing stability and financial support provided, but also the systemic challenges, including social, cultural and financial barriers that limit access to and effectiveness of support. Findings suggest the need for regular adjustments, such as broadening eligibility criteria, working with NGOs and providing longer-term assistance, to optimize the impact of the program and support the sustainable integration of beneficiaries.

1. Introduction: The Context of Housing Policies in Cluj-Napoca

Cluj-Napoca is located in central Romania (south-eastern region of Europe). In recent years, the city has undergone an extensive process of development and modernization, being recognized at the European level as one of the cities with the best quality of life. It is a respected university center and a safe place where Romanians and Europeans alike want to live and raise their families. But like other large cities in Europe, this has a significant impact on vulnerable individuals, families and communities struggling to keep a roof over their heads in the face of rising costs. Recent studies suggest that, in large cities, this problem is exacerbated by gentrification and increased demand for housing from employees in high-value-added sectors such as information technology and knowledge services (Petrovici et al. 2022). According to research, rental prices in Cluj-Napoca have increased significantly in recent years, which has led to a housing affordability crisis for many families. This trend is the result of rising domestic demand, fueled by the rapid development of the local economy and the influx of young professionals attracted by job opportunities in the city. In a context of limited housing supply, rising prices are inevitable, which significantly affects low-income individuals and families. Families on low incomes, young people who have come out of the welfare system and people employed in low-wage jobs find it difficult to afford decent rents. Families living in marginalized areas also find it difficult to access housing closer to institutions providing services (e.g., hospitals, schools, etc.); these aspects contribute to the perpetuation of poverty and social exclusion, affecting the mental health and general well-being of these groups (Chaskin and Joseph 2015). For example, studies show that young people who have left the welfare system, even when they have managed to access employment, are unable to cover their housing costs, which significantly limits their standard of living (Afonso 2024). On the other hand, the phenomenon of gentrification, which involves the transformation of neighborhoods by attracting higher-income populations, contributes to social exclusion and exacerbates the deprivation of vulnerable communities. Rising house prices due to the changing social character of neighborhoods leads to further marginalization of already disadvantaged groups (Bronstein 2017). Chaskin and Joseph (2015) discuss how these processes can lead to a loss of community identity and an increase in social tensions (Chaskin and Joseph 2015).

Although there is Romanian legislation that allows the allocation of housing from the public fund1, taken up and applied in the municipality of Cluj-Napoca2, the permanent increase in applications from single persons/vulnerable families has led local public authorities to generate and apply a local policy called “rent payment assistance”3, modified4, aimed at low-income families and single persons, young people who have been through the protection system (they were without parental support) and victims of domestic violence. The present research analyzes the program with a qualitative approach, seeking to find the perspective of the beneficiaries as well as the specialists who apply this program, in an evaluative and participatory dimension.

Literature Review

Romania faces an alarming problem of in-work poverty, with one of the highest rates of in-work poverty in Europe. This is also evident in Cluj-Napoca, where many families just starting out are struggling to cover their housing costs despite having a job. Young people leaving the welfare system also face similar difficulties, as their incomes are often insufficient to cover rent (Fitzpatrick-Lewis et al. 2011).

Marginalization and social exclusion represent significant challenges in the context of housing policies, especially for vulnerable communities. According to the data, there are several marginalized areas with informal housing in the Cluj-Napoca municipality. The area generically called “Pata Rât”, where more than 1000 people, mainly Roma, live, is the most significant in several respects: it is located about 6 km from the city center, near the landfill, and is composed of four communities, each with a specific character: Dezmirului Street, formerly known as Cantonului Street, the “Dallas” area, the oldest of these settlements, the area of the landfill and the area called “Dealul Verde”. The houses are makeshift, built from recycled materials. Some households lack essential facilities such as running water and electricity. The area has no sanitation. Families live in an unhealthy environment, and access to education and health services is limited, with many of these services difficult to access due to the distance from the city center and transportation. These communities face cultural and economic barriers that limit their access to adequate housing. Studies suggest that, despite the fact that many members of these communities are employed, their incomes are often insufficient to cover housing costs, which contributes to the perpetuation of poverty and social exclusion (Odoyi and Riekkinen 2022).

Cultural barriers can include social stigma and discrimination, which affect access to housing for people in marginalized communities. For example, studies have shown that people from disadvantaged backgrounds often face prejudice from landlords, which limits their rental options, as evidenced in studies that “assess how ‘global’ the affordable housing crisis is” (Coupé 2020, p. 440). On the other hand, economic barriers are often related to low incomes and high housing costs. In Romania, including Cluj-Napoca, it has been found that young families, even those with a stable income from a job, cannot afford decent rents, which pushes them into situations of housing instability (Bahaman-Oskooee et al. 2021).

Housing policies are influenced by a variety of theories and analytical frameworks, which emphasize the importance of access to decent housing as a fundamental human right, as a crucial factor in preventing social exclusion and poverty, and as a mandatory step in the process of social inclusion. A central aspect of housing policies is rental support, often seen as a temporary solution for vulnerable people. Studies show that rental support measures can significantly reduce the risks of social exclusion, especially among vulnerable groups such as migrants or people on low incomes (Zamfir 2021; López-Sala and Gerbeau 2022). For example, research conducted in communities with large numbers of migrant workers has found that poor housing conditions contribute to their marginalization, highlighting the need for supportive policies to ensure access to adequate housing (López-Sala and Gerbeau 2022). In addition, housing policies need to be integrated into broader social inclusion strategies, as housing is closely linked to access to education, health and employment. Social inclusion is another key element of housing policies, whereby marginalized individuals and groups are included in society, with access to resources and opportunities. Social integration policies are essential for preventing social conflict and ensuring the stability of the political system. For example, in the context of the European Union, the social integration of immigrants is considered a priority and housing support measures are an integral part of these strategies (Rosca 2021; Anghel 2021). In Romania, post-financial-crisis social policies have been criticized for failing to adequately address the needs of vulnerable people, leading to continued social exclusion. The theoretical framework of housing policies emphasizes the interconnection between rental support and social inclusion. It is essential that housing policies are formulated holistically, taking into account not only the immediate needs of vulnerable people, but also the long-term impact on social cohesion and economic stability. Approaches that integrate rental support with social inclusion measures can significantly contribute to reducing poverty and socio-economic inequalities (Zamfir 2021).

In the face of these challenges, experts strongly recommend that local authorities develop inclusive housing policies that address the needs of vulnerable individuals, families and communities. These policies could include rent subsidies, social housing development and financial literacy initiatives to help families navigate the housing market (Iwarsson et al. 2023).

At the level of the municipality of Cluj-Napoca, research has been conducted that has provided a detailed and insightful perspective on the need for a well-planned and inclusive approach to strategic planning in Cluj-Napoca, stating that addressing complex urban needs requires comprehensive and carefully designed policy frameworks (Hințea 2008; Boc 2022). In addition, urban regeneration projects that actively include marginalized communities have been designed to ensure that these groups benefit from the economic development of the city. These initiatives not only promote social equity, but also increase community resilience, aligning with the principles of adaptive governance that prioritize inclusion and responsiveness. Researchers have emphasized these principles in examining governance during the COVID-19 pandemic, illustrating how adaptive governance can facilitate effective responses to crises while promoting community engagement (Țiclău et al. 2020). In addition, reform studies have shown the importance of aligning local policies with broader social reforms to support vulnerable populations in accessing essential services, including housing (Buda 2012), to promote a more equitable and resilient urban environment.

Experts also emphasize the importance of promoting urban regeneration projects that integrate marginalized communities, ensuring that they benefit from the city’s economic development (Boyd et al. 2016). Recent studies have also shown that integrating social justice frameworks into housing policies can further enhance the effectiveness of these initiatives (Mastrorillo et al. 2016). By prioritizing the needs of marginalized groups, local authorities can create a more inclusive urban landscape that empowers all residents.

International studies on rent subsidies provide valuable insights into the impact of rent support programs on vulnerable communities, highlighting good practices that could inspire policy improvement in Cluj-Napoca. By analyzing examples from countries such as France and Germany, it can be seen how these programs contribute to reducing social inequalities and improving the quality of life for low-income people.

In the United States, for example, rent subsidies have been shown to have a significant impact on the health and education of low-income children. Fenelon et al. (2021) showed that access to rental assistance programs can increase children’s school attendance by improving their health. This correlation suggests that rental assistance not only helps stabilize housing but also creates an environment conducive to children’s educational development. On the other hand, no direct correlation can be made between this form of support and the improvement of health problems, which are extremely present in families with poor material circumstances: “…we found no evidence that rental assistance was associated with a reduction in asthma attacks, which might suggest that rental assistance may not be associated with improvements in underlying health” (Boudreaux et al. 2020, p. 6). This suggests that rental help does not necessarily improve health, but is still important for overall quality of life.

In France, rent subsidy programs are integrated into broader social inclusion strategies, which aim not only to provide a roof over one’s head, but also to facilitate access to essential services such as education and health. These programs are often associated with community development initiatives aimed at improving living conditions in disadvantaged neighborhoods. Researchers suggest that community-based approaches, which include job training programs and childcare services, can support residents in managing the rental market and building relationships with landlords: “…Housing support workers and community developers who assist tenant households, as well as government departments that provide rent subsidies and public housing, should consider introducing neighborhood-based programs in places with high levels of deprivation to support local residents, including adult learning programs, job training, childcare services, and community centers” (Leviten-Reid et al. 2021, p. 11). Germany also provides relevant examples of rent support policies, such as the Wohngeld program, which helps low-income households to cover their housing costs. This program has proven its effectiveness in reducing the financial burden on vulnerable households and preventing social exclusion (Desmond and Perkins 2016). Studies have shown that rent subsidies contribute to housing stabilization and reduce the risk of poverty, with a positive impact on the mental and physical health of recipients (Fenelon et al. 2018). Another important aspect is that rent subsidies can also influence the environment. Fenelon et al. (2022) pointed out that rental assistance programs can have positive effects on communities, contributing to improved living conditions. This suggests that housing assistance is not only an economic relief measure but also an investment in public health and community well-being.

International studies on rent subsidies thus provide clear evidence that these programs can have a significant impact on vulnerable communities. Examples from the United States, France and Germany demonstrate that integrating rent subsidies into broader social inclusion strategies can lead to significant improvements in quality of life. These good practices could be adapted and implemented in Cluj-Napoca, taking into account the specific needs of the local community.

Communities in peri-urban areas such as Pata Rât, which represent a mix of homeless people and individuals/families living in makeshift housing, illustrate the challenges faced by marginalized people in accessing decent housing. Studies show that these people face not only economic hardship but also cultural barriers that limit their access to housing opportunities (Firestone et al. 2021). Research by Fitzpatrick-Lewis et al. (2011) suggests that interventions aimed at improving the health and housing conditions of homeless people can have a significant impact on their stability (Fitzpatrick-Lewis et al. 2011). In light of these findings, it is essential that housing policies are tailored to meet the specific needs of marginalized communities. Other suggestions include expanding rental support programs, developing financial literacy initiatives and partnering with local organizations to facilitate access to housing. Researchers also point to the importance of addressing social stigma and discrimination through community awareness and education campaigns (Fernández and Martin 2021).

Studies on marginalization and exclusion in housing policy highlight the importance of addressing the cultural and economic barriers faced by vulnerable communities. The experiences of the Pata Rât community highlight the need for more inclusive policies that are better adapted to social realities. Implementing appropriate measures can contribute to reducing poverty and improving housing conditions for marginalized people.

The data available in the context of this study show that in the municipality of Cluj-Napoca, individuals/households in difficulty do not necessarily have problems in terms of access to housing information, but they face a rather harsh reality: housing prices are among the highest in the country. In addition, people on low incomes also face the risk of over-indebtedness. A study by Apan (2024) argues the need to include information on the risk of over-indebtedness in intervention mechanisms for vulnerable groups. A debate on debt advice and the role of social services has been launched at national level in the framework of the project “Provision of a European Platform for the Prevention of Over-Indebtedness by the Increase of Accessibility and the Improvement of Effectiveness of Debt Advice for Citizens”, with the acronym PEPPI (EU co-funded European Consumer Debt Network).5

2. Materials and Methods

The article is based on a qualitative research paradigm, using qualitative methods of data collection, analysis, and interpretation of results to assess the effects of the rental support program in Cluj-Napoca.

Data were collected through semi-structured interviews (theoretically supported by Rubin and Rubin (2005), semi-structured interviews allow for in-depth exploration of the experiences of program beneficiaries) through a participatory observation approach field observation helps to understand the social context in which beneficiaries’ interaction with public policy takes place) and through an extensive document analysis approach. Bowen (2009) emphasizes the importance of relevant administrative documents, reports and legislation for understanding the data.

Thus, the study started with the analysis of official documents (Development Strategy of Cluj-Napoca Municipality, Local Council Decisions, working procedures) taken from the archives of Cluj-Napoca City Hall and the Social and Medical Assistance Department, in a context in which the specialists involved in the implementation of the program had pointed out that the program needed an evaluation from the perspective of efficiency but also a participatory dimension: we wanted to have the beneficiaries’ position on the program and the difficulties due to which families did not get to access the program.

The implementation of a project called Pata Plus (the program “Local Development, Poverty Reduction and Roma Inclusion”, funded by EEA and Norwegian grants 2014–2021, project code PN3007), brought together social workers and legal advisors directly involved in the program and in the protection of vulnerable people in a focus group held on 5 March 20246. Discussions focused on the strengths and limitations of the program, the need to expand it in the metropolitan area and other practical issues such as financial counseling and parenting education, highlighting the need for coordination between NGOs and local institutions. Thus, for the present study, the focus group transcript was analyzed, and possible additional points of view were solicited from the participant–specialists. Between January 2024 and April 2024, 10 interviews were conducted with beneficiary and non-beneficiary families of the program in their homes—i.e., ten interviews were conducted, of which only three families actually benefited from the program, although they were eligible according to the conditions of the local council decision. The families were taken at random from the database of the Social and Medical Assistance Directorate, in collaboration with the specialists responsible for the case. Only three families agreed to be registered for the research approach. For the others, systematized interview notes were used. These interviews reveal both perceived advantages (security, stability, proximity to school and work) and barriers to access (difficulties in finding a tenancy or ANAF requirements) as well as perceived disadvantages, such as uncertainty about the future after the end of the three-year support. The focus group and interviews generated important proposals for optimizing the program (also taken up in the rationale built for the adoption of Decision No. 522 of 20247), such as extending the duration of the subsidy and including financial counseling and parenting education services to help vulnerable families manage their financial resources and develop independent living skills. These proposals suggest an integrated and long-term approach to supporting marginalized communities.

Based on the research objective to evaluate the effects of the rent support program in Cluj-Napoca, this study proposes three research questions:

What are the main benefits and obstacles perceived by the beneficiaries of the rental support program in Cluj-Napoca, and to what extent do these aspects influence the housing stability of vulnerable families? This question aims to investigate the subjective impact of the program on the beneficiaries and to clarify whether the support provided significantly improves the living conditions of vulnerable families. Interview and focus group data can provide details about the direct experiences of beneficiaries and the difficulties they face in accessing and maintaining housing.

How do eligibility criteria and program constraints (such as income thresholds and duration) influence access to the subsidy for different categories of vulnerable people, in particular young care leavers and families in marginalized areas? This question allows us to explore the structural limitations of the program and how they affect accessibility for different vulnerable groups. The answers will be provided by analyzing data from focus groups and interviews, as well as by analyzing the database, which can show geographical and demographic discrepancies between applicants and beneficiaries.

To what extent are the current rental support measures sustainable in the long term, and what adjustments could help extend the benefits of the program to a larger number of eligible beneficiaries? This question investigates the long-term financial sustainability and impact of the program.

The data thus obtained were processed with a qualitative approach. Thus, a thematic analysis (Braun and Clarke 2006) was carried out to identify the main themes in the interviews and documents; an analysis of the interpretative framework (Goffman 1974) was also carried out, useful to understand how the beneficiaries and the specialists involved perceive this program, in a theoretical framework (Charmaz 2006) that helped us to develop inductive explanations of the effects of the program.

The analysis of official documents (Development Strategy of Cluj-Napoca Municipality, City Council Decisions and various relevant working procedures), in addition to the overview of the strategic and normative framework on housing and social inclusion policies in Cluj-Napoca, allowed us to understand the directions set by the authorities and the measures implemented to support access to housing for vulnerable groups.

Therefore, in addition to the documentary analysis, the data collected through individual interviews and focus groups provided a detailed and in-depth insight into the experiences and perceptions of housing program beneficiaries. This qualitative component complemented information from official documents, revealing the real challenges faced by beneficiaries and highlighting the needs and priorities of marginalized communities. The integration of data allowed for a comprehensive and balanced analysis, highlighting both the formal aspects and the social impact of housing policies implemented through local public policy.

2.1. Document Analysis: Local Public Policies to Increase Access to Decent Housing in Cluj-Napoca Municipality

The analysis of official documents reveals the initiatives of the local administration of Cluj-Napoca to increase access to decent housing, especially for vulnerable categories of the population, through public policy measures and local legislative interventions. These measures are based on the constitutional principles of the rule of law, which emphasize human dignity and the fundamental rights and freedoms of citizens, according to Art. 3 of the Romanian Constitution. Thus, at national and local levels, the authorities have assumed the responsibility to ensure adequate housing conditions for various vulnerable groups, such as people with disabilities, victims of human trafficking, foreign citizens with residence permits and other categories protected by the legislation in force.

In the Development Strategy of the Municipality of Cluj-Napoca for the period 2014–2020, approved by Decision No. 315/2015, the need for adequate housing has been integrated as a priority on the public agenda. The strategy, through the chapter “Inclusive Cluj”, defines an inclusive city as one where residents feel “at home”, emphasizing that access to decent housing is a fundamental component of quality of life and a key factor in social inclusion. The document recognizes that inadequate housing, along with other factors, such as lack of financial resources, poor education, or limited access to health services, contributes to a vicious circle of social disadvantage that can adversely affect generations.

In this context, the local government of Cluj-Napoca has developed a set of policies aimed at ensuring access to social housing and financial support for vulnerable groups, in particular through rent subsidy programs. Launched in 2018 through Decision No. 70/2018, this rent subsidy program is an important step in the local housing strategy. The program targets young people who have grown up in the protection system, vulnerable individuals and families in the municipality and victims of domestic violence, and aims to reduce the financial burden of rent, thus facilitating access to safer and more suitable housing for those at risk.

In the following years, following comments and suggestions from civil society, social specialists and beneficiaries, the program was extended and adjusted by new local council resolutions. Resolution 413/2020 extended the period of rental support to three years, recognizing that the initial period of two years was not sufficient to ensure long-term housing stability for the most vulnerable beneficiaries. This decision also introduced methodological changes, aimed at increasing the accessibility and transparency of the subsidy allocation process, in particular by adjusting the eligibility criteria and simplifying application procedures.

The Housing Strategy continued to evolve with the passage of Resolution No. 522/2024, which extended the rent subsidy period to five years. This decision reflects the city’s strong commitment to developing a sustainable and inclusive housing policy. In the context that the real estate market in Cluj-Napoca is characterized by constant increases in housing prices and rents, this extension is a particularly relevant measure for low-income families and individuals. The extension of the support period provides beneficiaries with greater housing stability, reducing the risk of forced migration due to high costs and facilitating a more solid social integration.

2.2. Analysis of Data Collected in Individual Interviews and Focus Group Discussions

During the analysis of the data collected during the individual interviews and the focus group, in order to assess the impact and limitations of the housing policy in Cluj-Napoca, a coding and anonymization system was used to ensure the confidentiality of the participants and to protect sensitive information. This system allows a clear and structured presentation of the responses without compromising the identity of the beneficiaries.

Thus, participants in individual interviews were coded as “SI” (Subject Interview), followed by a number indicating the order of each respondent (e.g., SI1, SI2, etc.). For focus group participants, the coding used the formula “SFG” (Subject Focus Group), followed by a number (e.g., SFG1, SFG2, etc.).

Through this coding method, the analysis can highlight the unique and diverse perspectives of each participant, providing insight into the experiences and perceptions of program beneficiaries. The anonymization system respects the ethical standards of social research, protecting the confidentiality of personal data while ensuring an accurate documentation of the impact of the policy on vulnerable communities in Cluj-Napoca.

We conducted a qualitative analysis of the interview and focus group data to assess the impact and limitations of the rental support program in Cluj-Napoca. The

Table 1. Main themes.

Main Theme	Subtopic	Relevant Quotes	Subject Code
Benefits of the program	Financial support	“We couldn’t pay the rent, we couldn’t live”	SI1
	Housing stability	“I was very happy that the city pays my rent”	SI2
	Comfort and peace	“I’m having a quiet coffee… it’s clean, quiet with the kids”	SI3
	Close to amenities	“I take the tram to work”	SI4
Challenges and limitations	Accessibility and stigma	“When they find out I’m from Pata Rât, many people don’t even want to talk to me”	SFG1
	Bureaucratic hurdles	“Many owners refuse to register contracts with ANAF”	SFG2
	Adaptation difficulties	“I miss the old place, I had family there…”	SI5
	Isolation in new communities	“I don’t know anyone and I find it hard to fit in”	SFG3
Needs for improvement	Extending long-term support	“After three years, what do I do?”	SI6
	Support for financial education	“Many lack financial skills… would need guidance”	SFG4
	Working with NGOs	“We should work more with NGOs for long-term support”	SFG5

below summarizes the main themes identified in participants’ responses, including relevant quotes to illustrate the perspective of each theme.

This framework highlights consistent responses on the benefits of housing support and the challenges faced by beneficiaries, including the need for stability and financial literacy. Integrating selected quotes, the analysis reveals the program’s contribution to reducing housing instability, but also the need for improvements to facilitate an effective transition to independent living.

We carried out a detailed analysis of the interview responses, organized thematically to highlight the perceptions and experiences of the beneficiaries of the rental support program in Cluj-Napoca. Below (in

Table 2. Detailed analysis of the interviews.

Main Theme	Subtopic	Relevant Quotes	Subject Code
Perceived benefits of the program	Leaving the community	“It was a disaster there, I couldn’t go out at night, I had nowhere to go, I stayed in the house with the girls…”	SI1
		“We couldn’t stay, they were drinking, doing drugs, fighting… burning each other’s shirts.”	SI3
	Housing stability	“I was very happy that the city pays my rent, very happy.”	SI2
	Financial support	“I kept thinking to myself, but where is the money for rent? I couldn’t pay the rent, I couldn’t live.”	SI4
	Comfort and peace	“Having a quiet coffee… it’s clean, quiet with the kids.”	SI5
	Proximity of means of transportation	“I take the tram to work…”	SI6

) are the main findings, accompanied by relevant quotes and thematic coding.

The analysis details the challenges and limitations of the housing program (in

Table 3. Challenges and limitations of the housing program.

Main Theme	Subtopic	Relevant Quotes	Subject Code
Challenges and limitations of the program	Accessibility	“Many owners refuse to register contracts with ANAF, and the beneficiaries have nothing to do.”	SFG1
	Stigmatization	“When they find out I’m from Pata Rât, a lot of people don’t even want to talk to me.”	SFG2
	Adaptation difficulties	“I miss the old place, I had family there… I don’t know anyone here and it’s hard to adapt.”	SI7
	Lack of a support network	“And who should I leave my children with? Here’s mom, I’ll put the baby in the house and leave.”	SI8
Future plans and long-term stability	Hope for social housing	“Maybe I’ll get it… I’ll go to work and still pay.”	SI9
	Refusal to return to the old community	“I’d rather kill myself and never get there…. I didn’t even need clothes.”	SI10
Proposals for improvement	Extending the duration of support	“After three years, what do I do?”	SI11
	Financial support for education	“Many lack financial skills… would need guidance.”	SFG3
	Working with NGOs	“We should work more with NGOs for long-term support.”	SFG4

), highlighting the affordability difficulties and stigmatization faced by beneficiaries, as well as future plans and proposals for improvement.

Beneficiaries’ statements emphasize the need for extended support, financial educational support and closer collaboration with NGOs to ensure the sustainable integration of vulnerable people.

3. Results

The official documents reviewed reflect ongoing efforts by the local government to adapt housing policies to the needs of citizens, demonstrating an understanding of the complexity of housing problems and the need for an integrated approach. However, these measures are presented as temporary solutions, while the analysis of the local strategy suggests that a long-term approach, including an increase in the stock of social housing and a consistent budget allocation, could provide a more sustainable solution to the housing problems faced by Cluj-Napoca. The local housing policy of the municipality of Cluj-Napoca, through rent subsidy programs and the urban development strategy, demonstrates a serious commitment to support vulnerable groups. The implementation of these measures and the extension of subsidy periods are important steps towards more inclusive housing and sustainable social integration and have the potential to serve as a model for other municipalities. Further evaluations will be essential to determine the long-term impact and sustainability of these policies and to identify the necessary adjustments in the dynamic housing market context. The data confirm other aspects revealed by the specialists. In order to improve the housing problems identified among young people who have left the protection system, the Social and Medical Assistance Department, a public service organized under the authority of the Cluj-Napoca City Council, implemented the project “We are with YOU!” (financed by POCU 738/4/20/20/135172). The project subsidized the rents of young people who have left the protection system for a period of two years and also carried out complex activities of counseling and facilitating social inclusion. The data collected in this program suggests that many continue to face significant challenges in maintaining housing, which also confirms what has been reported in the literature (Barton and Harpham 2010). For example, one study found that knowledge about housing policies and information about house prices have a positive impact on the likelihood of low-income households to purchase a home (Hartono et al. 2020).

3.1. Results of the Analysis of Research Question 1

3.1.1. What Are the Main Benefits and Obstacles Perceived by the Beneficiaries of the Rental Support Program in Cluj-Napoca, and to What Extent Do These Aspects Contribute to the Housing Stability of Vulnerable Families?

Benefits Identified

Interviews and focus groups highlighted the main benefits of the rental support program in terms of improving housing conditions and housing stability for vulnerable families. SFG1, a social welfare specialist, noted that “the rent subsidy is the biggest benefit that our beneficiaries who are victims of domestic violence can receive”, emphasizing the importance of this support for the safety and stability of those who have no other housing options.

This perspective is supported by the testimonies of beneficiaries like SI1, a single mother who recounted how she escaped a dangerous environment thanks to financial support. “It was a disaster there, we couldn’t go out at night and the girls were always sick”, she said, expressing her appreciation for the “stability and peace of mind” her new home offered.

For SI2, financial support was a decisive element in maintaining decent housing: “I had no way to pay the rent, no way to live”, she said, showing how the subsidy removed the uncertainty of housing. At the same time, SI3 emphasized the benefit of being close to transport and schools, which allows a more organized life for the family: “Now I can take the tram to work, the children are close to school”, she said.

3.1.2. Obstacles to Program Implementation: Difficulties of Families Who, Although Eligible, Did Not Access the Program

In addition to the important benefits, there were also significant barriers to program implementation related to discrimination from landlords and bureaucratic difficulties. SFG2 noted that “many of our Roma beneficiaries are turned away by landlords, either because they do not want to enter into contracts or because they demand higher rents”. This discrimination impedes access to housing and puts pressure on vulnerable families, limiting their options.

SI4 has encountered similar problems, explaining that “landlords, when they find out about the program, don’t want to sign a contract”, and has had to search for months to find an affordable rent. Administrative difficulties were also a major obstacle for many beneficiaries, particularly in obtaining the necessary paperwork. SFG3 emphasized that “many beneficiaries do not have the necessary skills to cope with the bureaucratic requirements”, and SI5 confirmed this statement: “Not everyone knows how to deal with the paperwork, to ask for what they need from ANAF, it is complicated for us”. Another significant obstacle is the uncertainty created by the limited duration of the subsidy. SI6 expressed concern that once the three-year support expires, they will have to fend for themselves, despite insufficient income: “It’s a good subsidy, but what do I do after three years? I still have to find a solution”. This long-term uncertainty affects the stability and future plans of many beneficiaries.

Interview and focus group analysis suggests that the rental support program provides essential benefits for housing stability and quality of life for vulnerable families. However, there are considerable barriers to implementation, including ethnic discrimination, bureaucratic difficulties and limitations imposed by the duration of the subsidy. These obstacles partly undermine the effectiveness of the program, affecting access to housing and long-term stability. In order to increase the efficiency and impact of the program, measures to simplify administrative procedures, remove discriminatory barriers and possibly extend the period of support would be necessary.

3.2. Results of Analyzing Research Question 2

3.2.1. How Do Eligibility Criteria and Program Constraints (Such as Income Thresholds and Three-Year Duration) Influence Access to the Subsidy for Different Categories of Vulnerable People?

Effects of Income Thresholds and Eligibility Criteria

Both in the focus group and in interviews, the restrictive impact of income thresholds was highlighted, particularly for families in vulnerable situations. SFG1 explained that the income thresholds “leave out some people who really need it, but who are earning just above the temporary benefit limit”. This view is complemented by the comments of SI1, a single mother, who, although entitled to income, had problems registering temporary income as “stable”, which affected her claim. She noted, “Child benefit was considered stable even though it was not enough for us”. Such situations suggest that the strict interpretation of stable income can disqualify recipients who are, in reality, living in financial insecurity.

Several participants indicated that income does not always reflect the level of vulnerability. SFG2 emphasized that “some young care leavers are excluded because they have no formal income”, even though they face significant difficulties in social and economic integration. This observation is supported by SI2, a young person without a stable job, who explained, “I have not been able to have a continuous job, but I need housing, and this prevents me from stabilizing”. Thus, the need for more flexible criteria for vulnerable young people and those on uncertain incomes emerges.

3.2.2. Program Duration Limits

The limited three-year duration of support is seen as problematic by many beneficiaries. SFG3 explained that “three years is not enough to make a real difference to these people’s lives”, supporting the idea of an extension. This view is supported by SI3, who has been receiving rent support for almost two years and is concerned about what she will do after the subsidy ends. She noted, “It’s a huge help, but what do I do after three years? I still don’t have complete stability”. This uncertainty puts pressure on beneficiaries, making them live with anxiety about their housing future.

SI4, an older person, added that temporary support is insufficient for older people who need a long-term housing solution, given their low incomes and difficulty in rehousing. “I can no longer save money for another rent… I need long-term stability”, said SI4, stressing the need to adapt the duration of the program to the particular situation of each beneficiary.

3.2.3. Geographical Constraints of the Program

In both focus groups and interviews, participants emphasized that the limited rent subsidy in Cluj-Napoca forces them to opt for more expensive housing when they would prefer to live in more affordable areas. SFG4 mentioned that “Floresti (a commune located in the immediate vicinity of Cluj-Napoca) would be a more affordable option for many, but they cannot use the subsidy there”, explaining that such localities could extend the accessibility of the program.

The same limitation was discussed by SI5, who found affordable housing in the metro area but couldn’t qualify for the subsidy: “It’s cheaper outside the city, but you can’t do it with the subsidy”. This constraint makes the program inaccessible to recipients who would prefer less expensive housing but are ineligible because of geographic limitations imposed by the program.

Program eligibility criteria and limitations on program duration and geography affect access to support for different vulnerable groups. Rigid income thresholds and the interpretation of income as “stable” do not always reflect the reality of vulnerability, sometimes excluding people with significant needs. The three-year duration is often insufficient to ensure long-term housing stability, and geographical restrictions limit housing options, particularly for those who would prefer areas outside Cluj. The results suggest that the program could be made more effective by making the eligibility criteria more flexible, extending the duration of support and broadening the geographic scope of application, thus better adapting to the varied needs of vulnerable communities in and around Cluj-Napoca.

3.3. Results of Analyzing Research Question 3

3.3.1. To What Extent Are the Current Rental Support Measures Sustainable in the Long Term, and What Adjustments Could Help Extend the Benefits of the Program?

Long-Term Sustainability of the Program

Focus group participants and beneficiaries interviewed expressed significant concerns about the long-term sustainability of the program. SFG1 observed that “although the program helps in the short term, without a strategy for scaling up or integrating longer-term support, many of the beneficiaries risk returning to precarious housing situations”. This observation reflects the fact that rent support provides a temporary solution, but does not fully address the economic and social problems that affect beneficiaries in the long term.

SI1, a beneficiary with young children, said he is worried about the future because the subsidy will expire soon. “If they leave me without support, that’s still where I’m going back, I have no other option”, he said, emphasizing that the current support does not guarantee sustainable housing stability. This suggests a real need for additional measures to support beneficiaries in the transition to long-term housing.

SFG2 proposed to extend the duration of the grant to a minimum of five years, arguing that “three years is not sufficient for beneficiaries to become financially independent and fully integrated”. This would allow beneficiaries a longer transition period in which to adapt economically and create a more stable support system.

In addition, SI2 suggested the integration of additional financial counseling and independent living services, noting that “many of us don’t know how to manage our money, we had nowhere to learn”. This proposal was supported by SFG3, who emphasized that “beneficiaries would need financial education and budget management support to be able to meet long-term expenses”. These additional measures could increase beneficiaries’ ability to support themselves and avoid falling back into vulnerable situations. Financial counseling sessions could contribute to better long-term housing stability and prevent financial problems. SI1, for example, explained, “I’ve never had to deal with rents and bills… it would help me to know how to organize myself better”. Through financial counseling (suggested by the beneficiary families but also by the specialists involved), the program would facilitate a smoother transition for people from vulnerable socio-economic backgrounds.

Another frequently mentioned proposal was the extension of the rent subsidy to areas bordering Cluj, where housing costs are lower. SFG4 explained that “Floresti, Apahida and other localities in the metropolitan area would offer more affordable rents”, which would allow for an expansion in the number of beneficiaries and a more efficient allocation of resources. SI3 also mentioned that “cheaper housing in Floresti would be perfect for my family, but we cannot use the subsidy there”. Expanding the geographical scope would increase the flexibility of the program and help families find more suitable and affordable housing.

3.3.2. Stigmatization, Discrimination

Key challenges, however, include affordability issues, stigma and financial barriers. SI3, a beneficiary, observed that landlords often refuse to register contracts with the ANAF or increase rents after finding out about the subsidy program. Discrimination against Roma and people living in marginalized areas adds further obstacles, as SI4 explained: “when they find out that I am from Pata Rât, many don’t even want to talk to me”. Beneficiaries are mainly single parents, young people leaving foster care and elderly people from low-income families, often with health problems, emphasizing the program’s role in ensuring housing stability. Many applications come from vulnerable areas such as Pata Rât and Canton, where housing conditions are precarious and infrastructure poor. SI6, from Canton, described moving to a safer area as essential for her children’s well-being: “We couldn’t stay there; it was always noisy and the children were afraid to go outside”. Interviews highlight the program’s impact on stability and safety. SI1, a single mother, was able to leave a dangerous area, giving her children a peaceful home. Similarly, SI2, a young couple, avoided an unsafe area, allowing their children to go to school safely. These examples demonstrate how the housing program improves the quality of life of beneficiaries, giving them a chance at a secure and hopeful future.

4. Local-Level Policy Discussions and Recommendations

In line with the literature, a rent subsidy program initiated and supported by a local public authority is an absolutely necessary complement to national public policies and an adequate response to the needs of vulnerable communities.

The rental support program in Cluj-Napoca presents both benefits and significant barriers to accessibility, with only 50% of applicants completing the process of obtaining and maintaining eligibility.

Following research question 1 (What are the main benefits and obstacles perceived by the beneficiaries of the rental support program in Cluj-Napoca, and to what extent do these aspects influence the housing stability of vulnerable families?), the results showed a significant impact on the quality of life of the beneficiaries, a significant improvement in their living conditions and a better dynamic in family life, but also difficulties, such as discrimination issues and fear of losing the link with the original community, especially when we talk about inhabitants of peri-urban areas.

Following research question 2 (How do eligibility criteria and program constraints (such as income thresholds and duration) influence access to the subsidy for different categories of vulnerable people, in particular young care leavers and families from marginalized areas?), a much better dynamic for people not coming from marginalized areas was observed. An important limitation of the program is the 24 months of residence in Cluj-Napoca. Vulnerable people will migrate precisely because they do not have or are not linked to a dwelling and thus leave in search of resources for their own lives. It was also found that if for the entry into the program, this could only take place through means testing, after the entry into the program, the family could not increase their income. This was corrected by the adoption of the Council Decision No. 522 of 2024, which introduced a grace period of 24 months, and thus the family can learn to increase their income so that the stay in a particular protection system does not become a trap of deprivation and poverty.

Following research question 3 (To what extent are the current rent support measures sustainable in the long term, and what adjustments could help to extend the benefits of the program to a larger number of eligible beneficiaries?), the researchers had the confirmation that any program generated by local authorities needs a participatory dimension, that the direct beneficiaries have the right to determine whether the program is beneficial to them or not and to propose mechanisms to correct it or correct some non-functional elements. In line with the literature, housing support programs are essential in increasing the quality of life, in increasing the ability of adults to obtain employment or in the cultural dimension of adolescents and young people. And yet, long-term stability is preferred by potential beneficiaries more than anything else, as they are forced to rely on the community network of the extended family at the expense of a possible improvement in housing conditions in the very short term.

Both in the focus groups and in the interviews, participants made suggestions for improvements to increase the effectiveness and sustainability of the program.

The current rental support measures are beneficial, but are not sufficiently sustainable in the long term to ensure lasting housing stability for beneficiaries. Extending the subsidy period, adding financial counseling services and extending the program to areas bordering Cluj could increase its effectiveness and sustainability. Through these adjustments, the program could provide more consistent support, fostering the economic and housing integration of vulnerable people, while reducing the risk of a return to precarious situations after the end of the subsidy.

Another recommendation to increase affordability is to coordinate housing policy with local NGOs, which have experience in supporting vulnerable communities and can provide additional resources. SFG1 emphasized that “without NGOs, many of these people would not be able to access basic services”, indicating the importance of structured collaboration between the local government and the non-profit sector.

In order to broaden the scope of support, it is suggested to adjust the eligibility criteria to include new categories of beneficiaries, such as young people coming from foster care and other vulnerable groups such as migrants. Currently, the criteria are too restrictive for certain at-risk groups, and the expansion would allow for the inclusion of young people who have not had a supportive family but are equally vulnerable and in need of housing support. SFG2 noted, “Young people from foster care have the same needs as those in care but are not eligible… this should be corrected”. Another key recommendation is to offer long-term support to beneficiaries in particularly vulnerable situations, such as people in insecure employment or older people without family support networks. Extending the support period would enable an effective transition to independent living for people with unstable incomes. In addition, for older people who have no family or other forms of support, it is recommended to extend the subsidy until a suitable care facility is identified or until social housing is allocated by the municipality. SI2, an elderly beneficiary, said, “After three years, what am I going to do? I have nowhere to go… I would need help for longer”. This proposal would better address the special needs of older people, ensuring continuity of support and adequate social protection.

These recommendations emphasize adapting housing policy to the real and varied needs of beneficiaries, promoting a more inclusive and flexible approach, ensuring not only access to housing, but also long-term integration into the community.

5. Conclusions

Findings on the impact of the housing policy in Cluj-Napoca show that it has played a key role in reducing housing instability and supporting marginalized groups in situations of severe vulnerability. The rental support policy has contributed to improving the quality of life of beneficiaries who otherwise would have continued to live in insecure and precarious conditions.

For many recipients, the grant was more than just financial support; it was an important step towards a more stable and secure life and a partnership with the case manager, perceived as having a positive role in restoring balance for the single person/family in need. Interviews with beneficiaries showed that without this policy, they would have had few options to move into suitable housing, particularly in the context of housing market discrimination and financial pressures. By providing support, housing policy has brought a sense of security and a more stable future for those who have benefited from it. However, the conclusions also underline the need for continuous evaluation and regular adjustments of the policy to increase its long-term effectiveness. The current policy faces significant limitations, such as strict eligibility criteria, the relatively short duration of the subsidy and geographical restrictions (e.g., the possibility to access a rental only in the municipality of Cluj-Napoca, where prices remain significantly higher than in surrounding areas). To maximize the impact, a relaxation of the criteria and an extension of the support period could allow more vulnerable groups, such as migrants or elderly people without support networks, to access the program.

In addition, continuous evaluation of the implementation and results of this program would allow for early identification of challenges and adjustment of interventions to best respond to community needs. Thus, through regular adaptation and a constant monitoring process, housing policy could evolve into a more effective and inclusive tool for reducing housing instability and supporting the most vulnerable of Cluj’s inhabitants. This approach would not only maintain but also increase the positive impact of the policy, strengthening it as an integral part of a sustainable and effective support system for marginalized communities.