This work aims to investigate the central role that administrative and regulatory simplification can play as a strategic tool to attract investments and improve the public services sector, with particular reference to the context outlined by the National Recovery and Resilience Plan (PNRR). The analysis starts from a historical reconstruction of the evolution of regulatory simplification in Italy, highlighting the structural difficulties linked to administrative complexity and institutional fragmentation, which often hinder the efficiency of public action. This framework introduces the topic of enabling reforms envisaged by the PNRR, with a particular focus on the innovations introduced by the new Public Contracts Code, which has significant implications for the management of public services of general economic interest. A central aspect of the research is dedicated to the public-private partnership (PPP), considered an essential tool to address the infrastructural and financial challenges that characterize our country, especially in a context of limited public resources. Through a comparison with the models adopted in other European countries, it emerges that PPP, if supported by clear and effective regulation, can represent a powerful driver to attract private capital, promote more efficient management of resources and foster innovation in services. However, the obstacles that still limit its effectiveness in Italy are also highlighted, including risk allocation and the persistence of regulatory complexity that discourages investors and makes it difficult to implement projects. The experience gained at A2A S.p.a. has offered a privileged observation point to understand how such bureaucratic and regulatory inefficiencies have actually slowed down strategic investments, especially in the environmental sector, highlighting the urgency of an incisive and concrete simplification to stimulate development. A further element of reflection concerns the marked infrastructural inequalities that characterize the different areas of the country, penalizing in particular the southern regions, where the deficiencies in public services compromise not only economic competitiveness, but also the well-being of citizens. This territorial imbalance makes a systemic approach to simplification even more urgent, one that can integrate regulatory and administrative interventions to improve the efficiency of public administration and guarantee higher quality standards in the services provided. In the final part, the work proposes an innovative perspective on the role of simplification, integrating the lessons learned from European experiences with a critical analysis of the results of Italian reforms. It is emphasized that the full success of the PNRR depends not only on the ability to overcome procedural barriers, but also on the need for a cultural and organizational change, essential to translate the principles of efficiency and effectiveness into concrete operational practices. The experience gathered shows that a more streamlined bureaucratic system and a coherent and clear regulation not only facilitate the attraction of investments, but also improve the quality of public services but, to date, this remains unrealized.
Questo lavoro si propone di approfondire il ruolo centrale che la semplificazione amministrativa e normativa può assumere come strumento strategico per attrarre investimenti e migliorare il settore dei servizi pubblici, con particolare riferimento al contesto delineato dal Piano Nazionale di Ripresa e Resilienza (PNRR). L’analisi prende le mosse da una ricostruzione storica dell’evoluzione della semplificazione normativa in Italia, ponendo in evidenza le difficoltà strutturali legate alla complessità amministrativa e alla frammentazione istituzionale, che spesso ostacolano l’efficienza dell’azione pubblica. Questo quadro introduce il tema delle riforme abilitanti previste dal PNRR, con un focus particolare sulle novità introdotte dal nuovo Codice dei Contratti Pubblici, che presenta rilevanti implicazioni per la gestione dei servizi pubblici di interesse economico generale. Un aspetto centrale della ricerca è dedicato al partenariato pubblico-privato (PPP), considerato uno strumento essenziale per affrontare le sfide infrastrutturali e finanziarie che caratterizzano il nostro Paese, soprattutto in un contesto di risorse pubbliche limitate. Attraverso un confronto con i modelli adottati in altri Paesi europei, emerge come il PPP, se supportato da una regolamentazione chiara ed efficace, possa rappresentare un potente volano per attrarre capitali privati, promuovere una gestione più efficiente delle risorse e favorire l’innovazione nei servizi. Tuttavia, vengono anche messi in luce gli ostacoli che ancora ne limitano l’efficacia in Italia, tra cui l’allocazione dei rischi e la persistenza di una complessità normativa che scoraggia gli investitori e rende difficoltosa la realizzazione dei progetti. L’esperienza maturata presso A2A S.p.a. ha offerto un punto di osservazione privilegiato per comprendere come tali inefficienze burocratiche e normative abbiano effettivamente rallentato investimenti strategici, specialmente nel settore ambientale, evidenziando l’urgenza di una semplificazione incisiva e concreta per stimolare lo sviluppo. Un ulteriore elemento di riflessione riguarda le marcate disuguaglianze infrastrutturali che caratterizzano le diverse aree del Paese, penalizzando in particolare le regioni meridionali, dove le carenze nei servizi pubblici compromettono non solo la competitività economica, ma anche il benessere dei cittadini. Questo squilibrio territoriale rende ancora più urgente un approccio sistemico alla semplificazione, che sappia integrare interventi normativi e amministrativi per migliorare l’efficienza della pubblica amministrazione e garantire standard di qualità più elevati nei servizi erogati. Nella parte conclusiva, il lavoro propone una prospettiva innovativa sul ruolo della semplificazione, integrando le lezioni apprese dalle esperienze europee con un’analisi critica dei risultati delle riforme italiane. Si sottolinea come il pieno successo del PNRR dipenda non solo dalla capacità di superare le barriere procedurali, ma anche dalla necessità di un cambiamento culturale e organizzativo, indispensabile per tradurre i principi di efficienza ed efficacia in prassi operative concrete. L’esperienza raccolta dimostra che un sistema burocratico più snello e una regolazione coerente e chiara non solo facilitano l’attrazione di investimenti, ma migliorano anche la qualità dei servizi pubblici ma, ad oggi, ciò resta ancora irrealizzato.
La semplificazione normativa e amministrativa come presupposto per attrarre investimenti in materia ambientale: il PNRR per uno sviluppo sostenibile dei servizi pubblici locali.
ABONDIO, IRENE
2025
Abstract
This work aims to investigate the central role that administrative and regulatory simplification can play as a strategic tool to attract investments and improve the public services sector, with particular reference to the context outlined by the National Recovery and Resilience Plan (PNRR). The analysis starts from a historical reconstruction of the evolution of regulatory simplification in Italy, highlighting the structural difficulties linked to administrative complexity and institutional fragmentation, which often hinder the efficiency of public action. This framework introduces the topic of enabling reforms envisaged by the PNRR, with a particular focus on the innovations introduced by the new Public Contracts Code, which has significant implications for the management of public services of general economic interest. A central aspect of the research is dedicated to the public-private partnership (PPP), considered an essential tool to address the infrastructural and financial challenges that characterize our country, especially in a context of limited public resources. Through a comparison with the models adopted in other European countries, it emerges that PPP, if supported by clear and effective regulation, can represent a powerful driver to attract private capital, promote more efficient management of resources and foster innovation in services. However, the obstacles that still limit its effectiveness in Italy are also highlighted, including risk allocation and the persistence of regulatory complexity that discourages investors and makes it difficult to implement projects. The experience gained at A2A S.p.a. has offered a privileged observation point to understand how such bureaucratic and regulatory inefficiencies have actually slowed down strategic investments, especially in the environmental sector, highlighting the urgency of an incisive and concrete simplification to stimulate development. A further element of reflection concerns the marked infrastructural inequalities that characterize the different areas of the country, penalizing in particular the southern regions, where the deficiencies in public services compromise not only economic competitiveness, but also the well-being of citizens. This territorial imbalance makes a systemic approach to simplification even more urgent, one that can integrate regulatory and administrative interventions to improve the efficiency of public administration and guarantee higher quality standards in the services provided. In the final part, the work proposes an innovative perspective on the role of simplification, integrating the lessons learned from European experiences with a critical analysis of the results of Italian reforms. It is emphasized that the full success of the PNRR depends not only on the ability to overcome procedural barriers, but also on the need for a cultural and organizational change, essential to translate the principles of efficiency and effectiveness into concrete operational practices. The experience gathered shows that a more streamlined bureaucratic system and a coherent and clear regulation not only facilitate the attraction of investments, but also improve the quality of public services but, to date, this remains unrealized.File | Dimensione | Formato | |
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Tesi corretta Abondio.pdf
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https://hdl.handle.net/20.500.14242/215246
URN:NBN:IT:UNIBS-215246