The Court of Accounts has published the first report on PNRR: we have selected the key contents for you.<\/p>\n
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The Court of Auditors has recently published the <\/span>\n First Report on the Status of Implementation of the National Recovery and Resilience Plan (NRP).<\/span>\n<\/a>. It is a meaty document (381 pages), still partly provisional because, as it is the first report and the first year of implementation, not all information is available. However, it provides, perhaps in part because of this, a lot of interesting structural information that provides a more specific understanding of how the NRP works.<\/span><\/p>\n We have tried to draw from it the main and precisely more “structural” points, especially from the perspective of those working on European projects. We organized them into three sections:<\/span><\/p>\n We will delve into the specific perspectives of Third Sector entities in the next post.<\/span><\/p>\n An extreme summary of the report is available in the <\/span>press release<\/span><\/a> of the Court of Auditors, which confirms that “<\/span>Implementation is proceeding without particular delays<\/i><\/b>“<\/span><\/i>; but which also stresses that it is essential to have, among other things <\/span>“a high level of planning capacity that can assist and guide the implementing entities” <\/span><\/i>and how it is still limited <\/span>“the availability of technical structures to support the design capacity of territorial administrations.”<\/span><\/i><\/p>\n As we have argued on <\/span>\n other occasions<\/span>\n<\/a>, it is a historical moment in which the <\/span>ability to design<\/b> significantly affect our country’s development prospects, both at the central (implementing entities) and decentralized (territorial governments) levels. This concept, which can be traced back to the so-called “<\/span>\n absorption capacity<\/span>\n<\/a>“, is reiterated in some important points in the final part of the report:<\/span><\/p>\n “The overall availability offered by the European Union’s integrated financial instruments, while on the one hand it represents ‘the spur to growth’ and thus to a virtuous path for the Union’s economy, is also a challenge for Italy. The resilience of each member country will also depend on the <\/span><\/i>absorption capacity<\/i><\/b> Of NGEU funds, in a relatively short time. In fact, the available allocations are represented not only by the NGEU Funds, but also by the remaining allocations from the 2014-2020 MFF and the new 2021-2027 MFF.”<\/span><\/i><\/p>\n The same section of the report makes it clear how the NRP and Recovery Instrument require a real change in thinking in terms of <\/span>project design and monitoring<\/b>: they in fact apply “<\/span>a regime of conditionality (also referred to as “aggravated”)<\/span><\/i>” referring “<\/span>no longer to the demonstration of expenditures made, as for the EIS Funds <\/span><\/i>[i.e., for the Structural Funds]<\/span> but to the results achieved, which implies special attention to both the design phase and the actual implementation of the steps of the interventions and their timing<\/span><\/i>“. The concept of “absorption” should not only be thought of in the (already problematic for Italy) terms of resource utilization, but also and above all in terms of goals and results achieved.<\/span><\/p>\n Finally, the report points out, in the case of the NRP, “dysfunctional” spending not only implies a waste of resources, but also poses the additional problem <\/span>\n “of having to <\/span>\n<\/i>\n repay debts<\/i>\n<\/b>\n for which the expected return on investment has not been realized in returns.”<\/span>\n<\/i>. And in the Italian case, <\/span>“a risk of inadequate absorption could also potentially arise from some of the way the Recovery and Resilience Plan was constructed, characterized by a top-down process, tending to lack sub-national involvement in the implementation and evaluation phases, and with centralization of major public investments.”<\/span><\/i><\/p>\n So all is well at the moment: but the most important year for grasping the great challenges and opportunities of the NRP is right now.<\/span><\/p>\n An important part of the report is devoted to tables of analysis related to the <\/span>planning of the NRP<\/b> and amounts allocated, based on various parameters. For example:<\/span><\/p>\n Of particular interest to local and civil society actors is a section devoted to the <\/span>regional governance of the NRRP<\/b>, with summary sheets for each region describing the composition and mandate of each of the regional structures dedicated to the PNRR.<\/span><\/p>\n We invite you to read the text of the report and focus, next, on the structural data that we find most interesting for understanding the logic and mode of operation of the NRP.<\/span><\/p>\n As we know, the path of the NRP is marked by Milestones and Targets, i.e., intermediate and final goals used to monitor its progress not only from the point of view of financial disbursement, but also and especially from the point of view of content (a key aspect, as explained above). The analysis of Milestones and Targets allows us to truly understand. <\/span>“what’s to be done” about the NRP<\/b> from the perspective of institutions and managing authorities; and consequently, what kind of impact and contribution we can expect in terms of design (see Chart 17, page 68 of the report).<\/span><\/p>\n\n The distinction made between Regulatory-Administrative Milestones and Targets and Operational Milestones and Targets echoes (in broad strokes) the organization of the NRP into Reforms and Investments. Le <\/span>Reforms<\/b> absorb 3 percent of PNRR resources but can have a great systemic impact on all Italian actors and territories. The <\/span>Investments<\/b> are obviously more specific (although they too are thought of in terms of systemic impact) and absorb 97 percent of NRP resources (see Table 4, page 29 of the report).<\/span><\/p>\n In terms of planning, the most relevant part is therefore the following <\/span>Milestones and Operational Targets<\/b>, which will be largely constituted by public procedures (i.e., basically by <\/span>procurement procedures<\/b>) and to a large extent by <\/span>projects<\/b> (53% and 30% of Milestones and Operational Targets, respectively).<\/span><\/p>\n Data reported refer to the total of Milestones and Targets, i.e., those arising from the monitoring needs of EU funds and those arising from the needs of Italian administrations and monitoring of the Italian Complementary Plan. Narrowing the analysis to EU funds alone, the distribution does not change dramatically, but there is a higher weight of sectoral regulations under administrative targets; and procurement at the expense of projects (58 percent and 24 percent, respectively) under operational targets (see Chart 13, page 65 of the report).<\/span><\/p>\n A second aspect that the report helps clarify with some summary data is <\/span>who manages the PNRR funds<\/b>, at the national and territorial levels, including any calls when provided as part of the intervention (see Table 1, page 26, Table 2, page 28 and Table 22, page 59 of the report). In this sense, it is necessary to make a distinction between two levels of implementation:<\/span><\/p>\n Projects managed directly by the titular administration are called “titular,” those managed by other Implementing Entities are called “directed.”<\/span><\/p>\n\n The data reveal that :<\/span><\/p>\n\n
The background messages<\/b><\/h2>\n
Overall assessment and absorptive capacity<\/h3>\n
The need for a “change of mindset”<\/h3>\n
Summary data that aid understanding of the NRP<\/b><\/h2>\n
The planning analysis of the NRP<\/h3>\n
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The insight on regional governance<\/h3>\n
Types of Milestones and Targets<\/h3>\n
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\n\t Milestone e Target normativo-amministrativi<\/strong><\/th> %<\/strong>
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\n<\/th>\n<\/tr>\n<\/thead>\n\n\n\t Accordi e protocolli d'intesa<\/td> 4,6<\/td>\n<\/tr>\n \n\t Atti amministrativi<\/td> 16,9<\/td>\n<\/tr>\n \n\t Normativa governance<\/td> 2,7<\/td>\n<\/tr>\n \n\t Normativa settoriale<\/td> 47,0<\/td>\n<\/tr>\n \n\t Semplificazione<\/td> 11,0<\/td>\n<\/tr>\n \n\t Studi preliminari e linee guida<\/td> 17,8<\/td>\n<\/tr>\n \n\t Milestone e Target operativi<\/strong><\/td> %<\/strong><\/td>\n<\/tr>\n \n\t Monitoraggio<\/td> 8,3<\/td>\n<\/tr>\n \n\t Piano di riparto e trasferimenti<\/td> 4,2<\/td>\n<\/tr>\n \n\t Piano operativo<\/td> 4,2<\/td>\n<\/tr>\n \n\t Procedure ad evidenza pubblica (\u2248 appalti)<\/td> 53,2<\/td>\n<\/tr>\n \n\t Progetti<\/td> 30,2<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n\n Implementing parties at the national and territorial levels<\/h3>\n
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\n\t Fondi per Soggetto attuatore (PNRR)<\/strong><\/th> Milioni di \u20ac<\/strong><\/th> %<\/strong><\/th> <\/td> <\/td>\n<\/tr>\n<\/thead>\n \n\n\t Ministero<\/td> 43.773<\/td> 22,9<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Presidenza del Consiglio <\/td> 2.673<\/td> 1,4<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Regione<\/td> 24.629<\/td> 12,9<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Comune e Unione di comuni<\/td> 34.700<\/td> 18,1<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Ferrovie dello Stato<\/td> 25.597<\/td> 13,4<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Societ\u00e0 private<\/td> 1.800<\/td> 0,9<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Societ\u00e0 pubbliche<\/td> 14.989<\/td> 7,8<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Ente pubblico<\/td> 1.910<\/td> 1,0<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Agenzia nazionale <\/td> 21.345<\/td> 11,1<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Autorit\u00e0 indipendente <\/td> 1.257<\/td> 0,7<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Ente o autorit\u00e0 portuale <\/td> 270<\/td> 0,1<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Ente parco <\/td> 100<\/td> 0,1<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Istituto e scuola pubblica<\/td> 7.250<\/td> 3,8<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Istituto o ente pubblico di ricerca <\/td> 2.560<\/td> 1,3<\/td> <\/td> <\/td>\n<\/tr>\n \n\t Universit\u00e0 pubblica<\/td> 8.646<\/td> 4,5<\/td> <\/td> <\/td>\n<\/tr>\n \n\t TOTALE <\/strong><\/td> 191.499<\/strong><\/td> 100,0<\/strong><\/td> <\/td> <\/td>\n<\/tr>\n \n\t <\/td> <\/td> <\/td> <\/td> <\/td>\n<\/tr>\n \n\t Fondi e interventi per Amministrazione titolare (PNRR+PC)<\/strong><\/td> Milioni di \u20ac<\/strong><\/td> %<\/strong><\/td> Interventi<\/strong><\/td> %<\/strong><\/td>\n<\/tr>\n \n\t Infrastrutture e mobilit\u00e0<\/a><\/td> 49.462<\/td> 22,3<\/td> 65<\/td> 20,3<\/td>\n<\/tr>\n \n\t Transizione ecologica<\/a><\/td> 39.246<\/td> 17,7<\/td> 39<\/td> 12,2<\/td>\n<\/tr>\n \n\t Sviluppo economico<\/a><\/td> 25.041<\/td> 11,3<\/td> 18<\/td> 5,6<\/td>\n<\/tr>\n \n\t Salute<\/a><\/td> 18.013<\/td> 8,1<\/td> 24<\/td> 7,5<\/td>\n<\/tr>\n \n\t Istruzione<\/a><\/td> 17.594<\/td> 7,9<\/td> 16<\/td> 5,0<\/td>\n<\/tr>\n \n\t *Innovaz. tecnologica trans. digitale<\/a><\/td> 15.737<\/td> 7,1<\/td> 34<\/td> 10,6<\/td>\n<\/tr>\n \n\t Interno<\/a><\/td> 12.700<\/td> 5,7<\/td> 6<\/td> 1,9<\/td>\n<\/tr>\n \n\t Universit\u00e0 e ricerca<\/a><\/td> 12.232<\/td> 5,5<\/td> 17<\/td> 5,3<\/td>\n<\/tr>\n \n\t Lavoro e politiche sociali<\/a><\/td> 7.250<\/td> 3,3<\/td> 12<\/td> 3,8<\/td>\n<\/tr>\n \n\t Cultura<\/a><\/td> 5.730<\/td> 2,6<\/td> 24<\/td> 7,5<\/td>\n<\/tr>\n \n\t Pol. agricole, alimentari e forestali<\/a><\/td> 4.883<\/td> 2,2<\/td> 5<\/td> 1,6<\/td>\n<\/tr>\n \n\t Giustizia<\/a><\/td> 2.854<\/td> 1,3<\/td> 9<\/td> 2,8<\/td>\n<\/tr>\n \n\t Turismo<\/a><\/td> 2.400<\/td> 1,1<\/td> 14<\/td> 4,4<\/td>\n<\/tr>\n \n\t *Terremoti<\/td> 1.780<\/td> 0,8<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t *Sud e coesione territoriale<\/a><\/td> 1.695<\/td> 0,8<\/td> 6<\/td> 1,9<\/td>\n<\/tr>\n \n\t *Pubblica amministrazione<\/a><\/td> 1.269<\/td> 0,6<\/td> 11<\/td> 3,4<\/td>\n<\/tr>\n \n\t Affari esteri e coop. internazionale<\/a><\/td> 1.200<\/td> 0,5<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t *Protezione civile<\/a><\/td> 1.200<\/td> 0,5<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t *Sport<\/a><\/td> 700<\/td> 0,3<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t *Politiche giovanili<\/a><\/td> 650<\/td> 0,3<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t Economia e finanze<\/a><\/td> 340<\/td> 0,2<\/td> 10<\/td> 3,1<\/td>\n<\/tr>\n \n\t *Affari regionali e autonomie<\/a><\/td> 135<\/td> 0,1<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t *Pari opportunit\u00e0 e famiglia<\/a><\/td> 10<\/td> 0,0<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t *Segretariato generale<\/a><\/td> -<\/td> -<\/td> 2<\/td> 0,6<\/td>\n<\/tr>\n \n\t *Disabilit\u00e0<\/a><\/td> -<\/td> -<\/td> 1<\/td> 0,3<\/td>\n<\/tr>\n \n\t TOTALE <\/strong><\/td> 222.121<\/strong><\/td> 100,0<\/strong><\/td> 320<\/strong><\/td> 100,0<\/strong><\/td>\n<\/tr>\n \n\t * nell'ambito della Presidenza del Consiglio<\/td> <\/td> <\/td> <\/td> <\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n\n \n