The General Health Law (Law 14/1986) was the beginning of the transition from Social Security Health Care, a system fragmented into various subsystems without a joint management, with coverage of workers, pensioners and family members or assimilated and financed by contributions, to a National Health System, with universal coverage and financed by taxes. A decentralized "devolution" type system is organized, so that a Health Service is set up in each Autonomous Community. Decentralization took place over a period of 21 years, between 1981 and 2002. The General Health Law recognizes the right of all Spaniards and foreign citizens residing in Spain to the benefits of the health system and programs the progressive extension of health care. Health coverage under the Social Security Healthcare System was progressively (incrementally) extended to special groups, residents in Spain without sufficient economic resources (Royal Decree 1088/1989), EU foreigners and non-EU foreigners registered in Spain (Organic Law 4/2000).