COMMISSION STAFF WORKING DOCUMENT The EU Environmental Implementation Review Country Report - ITALY Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions The EU Environmental Implementation Review: Common Challenges and how to combine efforts to deliver better results
Date: 2017-02-03
Institutions: Directorate-General for Environment, European Commission
Subjects: EU environmental policy, EU initiative, Italy, application of EU law, environmental law, environmental protection, pollution control measures

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 3.2.2017  SWD(2017) 47 final   COMMISSION STAFF WORKING DOCUMENT The EU Environmental Implementation Review Country Report - ITALY   Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions The EU Environmental Implementation Review: Common Challenges and how to combine efforts to deliver better results   {COM(2017) 63 final} {SWD(2017) 33 - 46 final} {SWD(2017) 48 - 60 final}  
 
 
Italy  2 

This  report  has  been  written  by  the  staff  of  the  Directorate-General  for  Environment,  European 
Commission. Any comments are welcome to the following e-mail address: ENV-EIR@ec.europa.eu  

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Table of Content 

Italy  3 

EXECUTIVE SUMMARY .................................................................................................................................... 4 

PART I: THEMATIC AREAS ................................................................................................................................ 5 

1. 

TURNING  THE  EU  INTO  A  CIRCULAR,  RESOURCE-EFFICIENT,  GREEN  AND  COMPETITIVE  LOW-
CARBON ECONOMY ............................................................................................................................... 5 

Developing a circular economy and improving resource efficiency ...................................................... 5 
Waste management .............................................................................................................................. 8 

2. 

PROTECTING, CONSERVING AND ENHANCING NATURAL CAPITAL ..................................................... 11 

Nature and Biodiversity ....................................................................................................................... 11 
Estimating Natural Capital ................................................................................................................... 13 
Green infrastructure ............................................................................................................................ 13 
Soil protection ..................................................................................................................................... 13 
Marine protection ............................................................................................................................... 15 

3. 

ENSURING CITIZENS' HEALTH AND QUALITY OF LIFE .......................................................................... 16 

Air quality ............................................................................................................................................ 16 
 ................................................................................................................................................. 17 
Noise 
Water quality and management ......................................................................................................... 17 
Enhancing the sustainability of cities .................................................................................................. 21 
International agreements .................................................................................................................... 23 

PART II: ENABLING FRAMEWORK: IMPLEMENTATION TOOLS ...................................................................... 24 

4.  MARKET BASED INSTRUMENTS AND INVESTMENTS ........................................................................... 24 

Green taxation and environmentally harmful subsidies ..................................................................... 24 
Green Public Procurement .................................................................................................................. 25 
Investments: the contribution of EU funds ......................................................................................... 25 

5. 

EFFECTIVE GOVERNANCE AND KNOWLEDGE ...................................................................................... 28 

Effective governance within central, regional and local government ................................................. 28 
Compliance assurance ......................................................................................................................... 31 
Public participation and access to justice ............................................................................................ 32 
Access to Information, knowledge and evidence ................................................................................ 33 

Environmental Implementation Report – Italy 

 
 
 
 
Executive summary 

Italy  4 

About the Environmental Implementation Review 

launched 

reports  describing 

the 
the  Commission 
In  May  2016, 
Environmental  Implementation  Review  (EIR),  a  two-year 
cycle  of  analysis,  dialogue  and  collaboration  to  improve 
the  implementation  of  existing  EU  environmental  policy 
and  legislation1.  As  a  first  step,  the  Commission  drafted 
28 
the  main  challenges  and 
opportunities on environmental implementation for each 
Member  State.  These  reports  are  meant  to  stimulate  a 
positive debate both on shared environmental challenges 
for  the  EU,  as  well  as  on  the  most  effective  ways  to 
address the key implementation gaps. The reports rely on 
the detailed sectoral implementation reports collected or 
issued  by  the  Commission  under  specific  environmental 
legislation  as  well  as  the  2015  State  of  the  Environment 
Report  and  other  reports  by  the  European  Environment 
Agency.  These  reports  will  not  replace  the  specific 
legal 
instruments 
obligations.  

to  ensure  compliance  with  EU 

The  reports  will  broadly  follow  the  outline  of  the  7th 
Environmental Action Programme2 and refer to the 2030 
related 
for  Sustainable  development  and 
Agenda 
Sustainable  Development  Goals  (SDGs)3  to  the  extent  to 
which  they  reflect  the  existing  obligations  and  policy 
objectives of EU environmental law4.  

The  main  challenges  have  been  selected  by  taking  into 
account  factors  such  as  the  importance  or  the  gravity  of 
the  environmental  implementation  issue  in  the  light  of 
the  impact  on  the  quality  of  life  of  the  citizens,  the 
distance to target, and financial implications. 

The  reports  accompany  the  Communication  "The  EU 
Environmental  Implementation  Review  2016:  Common 
challenges  and  how  to  combine  efforts  to  deliver  better 
results",  which  identifies  challenges  that  are  common  to 
several Member States, provides preliminary conclusions 
on  possible  root  causes  of  implementation  gaps  and 
proposes  joint  actions  to  deliver  better  results.  It  also 
groups in its Annex the actions proposed in each country 
report to improve implementation at national level. 

pioneering  voluntary  agreements,  and  has  one  of  the 
highest  levels  of  EMAS  and  Eco-labels  in  the  EU.  The 
adoption  of  the  Collegato  Ambientale  was  a  major  step 
forward towards environmental integration.  

Main Challenges 

The main challenges with regard to implementation of EU 
environmental policy and law in Italy are to: 

 

 

and 

waste  management 

water 
including  waste  water  treatment, 
in 

Improve 
infrastructure, 
which  are  persistent  concerns  particularly 
southern Italy. 
Improve  management  of  land  use,  flooding  and  air 
pollution in the centre and northern regions. 

  Designate 

SACs. 

remaining 

Improving 

the 
conservation  status  of  habitats  and  species  of  EU 
interest  by  fully  implementing  the  Natura  2000 
instruments,  using  the  regional  Prioritised  Action 
Frameworks  to  ensure  a  better  integration  of  EU 
funds and a more strategic planning of investments. 

Main Opportunities 

Italy  could  perform  better  on  topics  where  there  is 
already  a  good  knowledge base  and good practices.  This 
applies in particular to: 

  Use 

for 

EIB 

the  opportunities 

and 
environmental investment with the ESIF support and 
the  EFSI.  ESIF  support  can  increase  the  quality  and 
efficiency  of  public  administration  to  develop  a 
better model of environmental governance. 

loans 

  Use  the  proposed  Green  Act  and  the  Committee  on 
to  make  wide-ranging 

Environmental  Taxation 
proposals. 

  Use  the 

Integrated  Project  “GESTIRE  2020”  [to 
update  the  Lombardy  Natura  2000Prioritised  Action 
Framework] as an example for other Italian regions. 

Points of Excellence 

Where  Italy  has  developed  innovative  approaches  they 
could be shared with other countries. Good examples are: 

General profile 

 

Environmental  implementation  represents a  challenge  in 
Italy  with  high  regional  variations  in  water  and  waste 
management.  With regard to resource efficiency, Italy is 

1 Communication "Delivering the benefits of EU environmental policies 

through a regular Environmental Implementation Review" 
(COM/2016/ 316 final). 

2 Decision No. 1386/2013/EU of 20 November 2013 on a General Union 
Environmental Action Programme to 2020 "Living well, within the 
limits of our planet". 

3 United Nations, 2015. The Sustainable Development Goals  
4 This EIR report does not cover climate change, chemicals and energy. 

Integrated  environmental  assessments  &  the  user-
friendliness  of  the  webportal  of  the  Ministry  of 
Environment on EIA & SEA. 
Administrative 

Reinforcement 

Plans 

  Regional 

covering ESIF and national funds 

  The  Committee  on  Environmental  Accounting 

established by the Collegato Ambientale. 
 
Innovative approaches developed by LIFE projects. 
  The BES (Benessere equo e sostenibile5) indicators. 

5 Wellbeing, equal and sustainable 

Environmental Implementation Report – Italy 

 
 
 
                                                            
                                                            
Part I: Thematic Areas 

1. Turning the EU into a circular, resource-efficient, green and 

competitive low-carbon economy 

Italy  5 

Developing  a  circular  economy  and  improving 
resource efficiency 

The 2015 Circular Economy Package emphasizes the need 
to  move  towards  a  lifecycle-driven  ‘circular’  economy, 
with a cascading use of resources and residual waste that 
is  close  to  zero.  This  can  be  facilitated  by  the 
development  of,  and  access  to,  innovative  financial 
instruments and funding for eco-innovation. 

SDG  8  invites  countries  to  promote  sustained,  inclusive 
and  sustainable  economic  growth,  full  and  productive 
employment  and  decent  work  for  all.  SDG  9  highlights 
infrastructure,  promote 
the  need  to  build  resilient 
inclusive  and  sustainable  industrialization  and  foster 
innovation.  SDG 12  encourages countries  to  achieve  the 
sustainable  management  and  efficient  use  of  natural 
resources by 2030. 

Measures towards the circular economy 

Transforming our economies from linear to circular offers 
an  opportunity  to  reinvent  them  and  make  them  more 
sustainable  and  competitive.  This  will 
stimulate 
investments and bring both short and long-term benefits 
for the economy, environment and citizens alike6. 
In  terms  of  resource  productivity7  (how  efficiently  the 
economy  uses  material  resources  to  produce  wealth), 
Italy  is  performing  better  than  average  in  the  EU,  with 
3.04  EUR/kg  (EU  average  is  2)  in  2015.8  Figure  1  shows 
that Italy has had a small but steady increase of resource 
productivity since 2005. 

As yet there is no national policy for programming for a 
circular  economy.  Nevertheless,  the  planned  Green  Act 
(mentioned  in  the  2015  and  2016  National  Reform 
Programmes)  should  facilitate  the  transition  to  a  more 
circular  and  resource  efficient  economy.  Efforts  are 
starting-up  to  promote  circular  economy  at  the  regional 
level9.Furthermore  the  2017  Budget  Law  (Legge  di 
Stabilità  2017)  is  promoting  circular  economy  through 

6 European Commission, 2015. Proposed Circular Economy Package 
7 Resource productivity is defined as the ratio between gross domestic 

product (GDP) and domestic material consumption (DMC). 

8 Eurostat, Resource productivity, accessed October 2016 
9 For example the new EU co-financed SCREEN project (Synergic 

Circular Economy across European regioNs (SCREEN), funded by the 
Horizon 2020 programme involving Lazio and Lombardy. 

Industria  4.010.  The  Collegato  Ambientale  adopted 
28.12.15  foresees  the  adoption  of  a  national  plan  on 
sustainable  consumption  and  production  within  one 
year11.    There  is  a  National  Plan  on  Food  Waste  since 
2014,  and  a 
law  to  encourage  the  donation  and 
distribution of food products and reduce waste has been 
recently adopted12. 

In  Milan  there  is  a  high-level  of  separate  collection  of 
food waste (93 kg/inhab/yr)13 recognised worldwide as a 
best practice in a city with over 1 million population. This 
has  had  a  'domino  effect'  in  encouraging  take  up  of 
collection of food waste in surrounding municipalities. 

A  local  initiative  of  circular  economy  is  how  industrial 
waste from is being used in the Val di Cornia in Tuscany 
(the Rimateria initiative14). 
Figure 1: Resource productivity 2003-1515 

Overall,  385,570  Italian  companies  invest  in  the  green 
economy and around 26.5% of Italian businesses can be 
considered  green.  The  Green  businesses'  rate  of 
innovation  is  double  that  of  other  businesses  (22.2% 
against  11.4%).  Similarly,  with  regard  to  exports,  green 
that  of  other 
businesses  export  almost  double 

10 Ministry of Environment, Press Release; Budget Law 232, 
11.12.16, Art.9 
11 Collegato Ambientale -Disposizioni in materia ambientale per 

promuovere misure di green economy e per il contenimento dell'uso 
eccessivo di risorse natura, Law n.221 of 28.12.2015, in force since 
04.02.2016. 

12 Disposizioni concernenti la donazione e la distribuzione di prodotti 

alimentari e farmaceutici a fini di solidarieta' sociale e per la 
limitazione degli sprechi, Law n.166 of 19.08.2016 
13 European Commission, Brussels workshop 13.01.2016 
14 Rimateria 
15 Eurostat, Resource productivity, accessed October 2016 

Environmental Implementation Report – Italy 

 
 
 
 
                                                            
 
                                                            
businesses16.  The  States  General  of  the  Green  Economy 
has been promoted by the National Council of the Green 
Economy,  made  up  of  64  business  organisations  that 
represent  the  green  economy  in  Italy,  in  collaboration 
with  the  Ministries  of  Environment  and  Economic 
Development17. Furthermore, in 2016, the Italian Alliance 
for  Sustainable  Development  (ASviS)  was  created  with 
the  objective  of  raising  awareness  on  the  Sustainable 
Development Goals (SDGs)18. 

According  to  a  study by the European  Commission,  Italy 
uses  mainly  voluntary  agreements  and  initiatives,  non-
legal  standards  for  products  and  services,  and  supports 
extended  producer  responsibility  for  materials  and 
products to foster resource efficiency.19 

There  are  some  notable  examples  such  as  the  Italian 
Environmental  Footprint  Programme,  launched  by  the 
Ministry  for  the  Environment.  The  programme  concerns 
the  environmental  footprint  of  goods/services  (carbon 
footprint and water footprint). The Collegato Ambientale 
establishes  a  wider  use  of  Product  Environmental 
in  Italy" 
Footprinting  (PEF)  with  the  "Made  Green 
scheme.  Italy  is  by  far  the  most  active  Member  State  in 
using  EMAS  and  it  has  the  highest  number  of  Eco-label 
products in the EU. 

Italy is characterised by low R&D investment levels, with 
a  1.29%  R&D  intensity20  (2.03%  EU  average),  caused  by 
the  scarcity  of  public  funding  instruments  and  of  high 
skilled  human  resources,  and  by  the  low  share  of  high-
tech  manufacturing  activities.  However,  there  is  a  high 
patenting in the fields of water pollution abatement and 
waste  management,  for  which  Italy  shows  elevated 
export shares21. 

SMEs and Resource Efficiency 

Innovative and export-oriented Small and Medium Sized 
Enterprises (SMEs) are the backbone of Italy's productive 
system.  In  terms  of  value  added  and  jobs,  SMEs  play  a 
more  significant  role  in  Italy  than  in  most  other  EU 
countries,  but  their  productivity,  measured  as  value 
added  per  capita,  is  approximately  10  %  below  the  EU 
average.  Furthermore,  Italian  SMEs  perform  below  the 
EU average in terms of their environmental performance, 
suggesting that it needs to do more in terms of policy in 
this area. The main challenges are related to the low level 
of  public  support  for  SMEs  taking  part  in  the  green 
economy. 

16 Symbola, Press Release 
17 States General  
18 Italian Alliance for Sustainable Development  
19 A framework for Member States to support business in improving its 

resource efficiency, 2015, study for the European Commission  

20 total R&D expenditures as a share of GDP 
21 Osservatorio Innovazione e Tecnologia per la Green Economy, 

Tecnologia e Innovazione nella Green Economy Italiana – Rapporto 
2015 

Italy  6 

Around  41%  of  Italy's  SMEs  have  invested  up  to  5%  of 
annual turnover in their resource efficiency actions (EU28 
average 50%), 15% are currently offering green products 
and services (EU28 average 26%), 37% took measures to 
save energy (EU28 average 59%), 59% to minimise waste 
(EU28  average  60%),  25%  to  save  water  (EU28  average 
44%),  and  38%  to  save  materials  (EU28  average  54%)22. 
From a circular economy perspective, 25% took measures 
to  recycle  by  reusing  material  or  waste  within  the 
company  (EU28  average  40%),  10%  to  design  products 
that are easier to maintain, repair or reuse (EU28 average 
22%)  and  17%  were  able  to  sell  their  scrap  material  to 
another company (EU28 average 25%).  

The  resource  efficiency  actions  undertaken  allowed  the 
reduction of production costs in 46% of the Italy's SMEs 
(EU28 average 45%)23. This is highly relevant considering 
the high number of SMEs in Italy (79.3% of private sector 
jobs above the EU-28 average of 66.8%)24. 

Around 30% of SMEs in Italy have one or more full time 
employee  working  in  a  green  job  at  least  some  of  the 
time (EU28 average 35%)25. 

(e.g.  Giada  Project; 

In  2014,  Italy  had  five  SME  support  programmes  for 
Innovhub 
resource  efficiency 
Milano).26  Furthermore, 
in  the 
European  Regional  Development  Fund 
(ERDF)  co-
financed  PRESOURCE  project,  which  provides  several 
tools  and 
instruments  to  help  promoting  resource 
efficiency in SMEs.27 

Italy  was 

involved 

The transition to a resource efficient economy will result 
in new jobs related to reuse, repair or recycling. In Italy, 
117,000  new  jobs  could  be  created  and  327,000  jobs 
could  be  secured  if  SMEs  in  four  sectors  (food  & 
beverages;  energy,  power  &  utilities;  environmental 
technologies;  construction)  would 
their 
potential for resource efficiency. Indeed the cost savings 
for these four SME sectors in Italy could amount to EUR 
10.4 billion; this implies an average saving of EUR 19,000 
per  enterprise  for  just  over  547,000  businesses  in  the 
four sectors.28  EFSI has financed an equity SMEs project 

fully  use 

22 European Commission, 2015. Flash 426 Eurobarometer "SMEs, 

resource efficiency and green markets" 

23 Idem 
24 European Commission, SMEs country sheets, 2016 
25 The Flash 426 Eurobarometer "SMEs, resource efficiency and green 

markets" defines "green job" as a job that directly deals with 
information, technologies, or materials that preserves or restores 
environmental quality. This requires specialised skills, knowledge, 
training, or experience (e.g. verifying compliance with environmental 
legislation, monitoring resource efficiency within the company, 
promoting and selling green products and services). 

26 RPA 2014, Economic and Social Benefits of Environmental Protection 
and Resource Efficiency Related to the European Semester, study for 
European Commission 

27 PRESOURCE 
28 RPA, 2015. Assessing the Potential Cost Savings and Resource 
Savings of Investments in 4 SME sectors, study for European 
Commission, p. 38 & 30 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
in  Italy  promoting  environmental  sustainability.  Other 
EFSI 
also 
under 
environmentally friendly29. 

consideration 

projects 

are 

Over  the  2014-20  programming  period,  the  ERDF  will 
invest in R&I and SME competitiveness based on national 
and regional smart specialisation strategies. For Italy, the 
national  strategy 
including 
energy, the environment and sustainable industry. 

identifies  5  focus  areas, 

Eco-Innovation 

The  relative  positioning  of  Italy  based  on  the  analysis  of 
the  2015  Eco-Innovation  Scoreboard  has  improved  and 
moved  up  in  the  EU28  ranking  from  12th  to  10th  place 
(Figure  2).  Social  awareness  with  regard  to  needs  and 
opportunities  in  the  context  of  sustainability  and  eco-
innovation has strongly grown over the recent years.30 As 
a highlight, it should be noted that the universal EXPO in 
Milan  2015  on  'Feeding  the  Planet,  Energy  for  Life'31  
showcased eco-innovation.  

Barriers  to  eco-innovation  and  the  circular  economy  in 
Italy  are  of  different  natures:  there  are  structural 
barriers,  such  as  those  related  to  the  economy  and 
technology,  as  well  as  barriers  related  to  policy  and 
regulation.  The  availability  of  risk  capital  for  both  the 
creation  and  continuation  of  eco-innovative  projects 
remains  scarce.  Italy’s  general  innovation  capacity  is 
behind  that  of  other  European  countries.  Nevertheless, 
there  have  been  major  developments  in  the  area  of 
green 
renewable  energy 
generation and non-fossil energy generation.  

technologies 

related 

to 

to 

the 

changes  on 

Research  related 
implementation  of  new 
management  practices  by  firms,  such  as  in  Antonioli  et 
al32,  can  provide  a  new  understanding  of  the  effects  of 
firms’  organisational 
eco-innovation 
adoption.  Specifically,  this  study  looked  into  whether 
environmental  strategies  and  human  resources  training 
are  integrated  with  the  goal  of  fostering  eco-innovation 
adoption.  Although  they  examined  one  of  the  most 
competitive  and  densely  industrialized  regions  of  Italy 
(Emilia  Romagna),  they  did  not  find  evidence  of 
complementarity  between  these  strategies.  A  possible 
explanation,  the  authors  concluded, 
is  that  green 
strategies  are  not  yet  fully  embedded  within  the  firms’ 
organisational  strategies.  Another  example  is  Lombardy 
recognized as having a high clustering of eco-industries33 
with  their  ERDF  co-financed  Open  Innovation  Platform 

Italy  7 

shortlisted as a 2016 REGIOSTAR finalist34. 
Figure 2: Eco-Innovation Index 2015 (EU=100)35 

Cainelli  et  al.36,  studying  incentives  to  adopt  waste-
related  innovation  in  the  manufacturing  sector,  found 
that regional factors related to both waste management 
and  policy,  are  relevant  to  the  adoption  of  eco-
innovation.  Moreover,  they  show  that  better  regional 
separated  waste  collection  and  stricter  waste  policy  can 
positively 
likelihood  of  adopting  eco-
innovation.  

influence  the 

Suggested action 

  Integrate  resource  efficient  and  circular  economy 
principles  within  the  SME  sector,  namely  energy  and 
water 
ecodesign 
production  and  the  establishment  of  secondary  raw 
material market.  

recycling  methods, 

savings, 

  Incentivise  academia  and  schools  in  order  to  promote 

circular economy innovation. 

  Step up the transition to a more circular and resource 
efficient economy, including by adopting the Green Act. 

29EFSI – Country Sheet Italy 
30 Eco-Innovation Observatory, p.12 
31 Milan Expo  
32 Antonioli, D., Mancinelli, S., & Mazzanti, M. (2013). Is environmental 

innovation embedded within high-performance organisational 
changes? The role of human resource management and 
complementarity in green business strategies. Research Policy, 42(4), 
975-988. 

33 European Cluster Observatory 

34 European Commission, 2016 REGIOSTARS finalists 
35 Eco-innovation Observatory: Eco-Innovation scoreboard 2015 
36 Cainelli, G., D’Amato, A., & Mazzanti, M. (2015). Adoption of waste-
reducing technology in manufacturing: Regional factors and policy 
issues. Resource and Energy Economics, 39, 53-67 

Environmental Implementation Report – Italy 

 
 
                                                            
 
 
                                                            
Waste management  

kg/y/inhabitant). 

Italy  8 

Turning waste into a resource requires: 
 

implementation  of  Union  waste 

Full 
legislation, 
which  includes  the  waste  hierarchy;  the  need  to 
ensure  separate  collection  of  waste;  the  landfill 
diversion targets etc. 

  Reducing  per  capita  waste  generation  and  waste 

 

generation in absolute terms. 
Limiting energy recovery to non-recyclable materials 
and  phasing  out 
recyclable  or 
recoverable waste. 

landfilling  of 

SDG  12  invites  countries  to  substantially  reduce  waste 
generation  through  prevention,  reduction,  recycling  and 
reuse, by 2030. 

The EU's approach to waste management is based on the 
"waste  hierarchy"  which  sets  out  an  order  of  priority 
when  shaping  waste  policy  and  managing  waste  at  the 
operational 
level:  prevention,  (preparing  for)  reuse, 
recycling,  recovery  and,  as  the  least  preferred  option, 
incineration 
disposal  (which 
without energy recovery). The progress towards reaching 
recycling 
the  adoption  of  adequate 
WMP/WPP37  should  be  the  key  items  to  measure  the 
performance  of  Member  States.  This  section  focuses  on 
management  of  municipal  waste  for  which  EU  law  sets 
mandatory recycling targets. 

landfilling  and 

targets  and 

includes 

Figure  3:  Municipal  waste  by  treatment  in  Italy  2007-
1438 

Municipal waste generation39 has been decreasing in the 
last years in Italy and it is slightly above the EU average 
to  475 
(488  kg/y/inhabitant 

Italy  compared 

in 

Figure 3 depicts the municipal waste by treatment in Italy 
in  terms  of  kg  per  capita,  which  shows  an  increase  of 
recycling and composting and a decrease in landfilling. 

Figure 4: Recycling rate of municipal waste 2007-1440 

Figure 4 shows that in 2014 recycling of municipal waste, 
including  composting  and  material  recycling,  accounted 
for  46%  (although  there  are  large  differences  between 
regions),  just  above  the  EU  average  (44%)  and  slightly 
below the EU 2020 target of 50% recycling41. 

Landfilling  of  municipal  waste  accounted  for  34% 
compared  to  other  treatment  options  (EU  average  27%) 
in  2014  and  the  amount  of  waste  landfilled,  and  is 
constantly  decreasing  since  2002,  in  favour  of  the  other 
treatment  options  that  rank  higher 
in  the  waste 
hierarchy,  including  separate  collection  and  recycling42. 
Italy  reported  reaching  its  2011  landfill  target  of  92 
kg/inhabitant in 2014, and seems now to be on the path 
towards  fulfilment  of  the  2018  target  of  the  landfill 
directive.  The  Italian  government  is  deploying  steady 
efforts  to  restore  the  irregular  landfill  sites  for  some  of 
which  Italy  has  been  subjected  to  financial  penalties  by 
the EU Court of Justice in 2014.   

Waste  policies  are  implemented  at  regional,  provincial 
and  municipal  levels  under  national  umbrellas.  Despite 
overall progress in separate collection and recycling, the 
differences in performance at the local level can be high. 
Excellences are common in the north of the country and 
in some contexts also in the centre and south (Campania-

37 Waste Management Plans/Waste Prevention Programmes 
38 Eurostat, Municipal waste and treatment, by type of treatment 

method, accessed October 2016 

39 Municipal waste consists of waste collected by or on behalf of 

municipal authorities, or directly by the private sector (business or 
private non-profit institutions) not on behalf of municipalities. 

40 Eurostat, Recycling rate of municipal waste, accessed October 2016 
41 Member States may choose a different method than the one used by 
Eurostat (and referred to in this report) to calculate their recycling 
rates and track compliance with the 2020 target of 50% recycling of 
municipal waste. 

42 Italy has introduced measures to increase separated collection and 

recycling since 1997. 

Environmental Implementation Report – Italy 

 
 
 
                                                            
 
                                                            
Province  of  Benevento  68.9%  &  Sardinia  –  Province  of 
collection43). 
Medio  Campidano 
However, in general the centre and south of the Country 
perform less well in waste management than the north.  

separate 

66.6% 

implement 

the  municipalities  which 

The reasons for the disparities are principally due to the 
late  industrialization  of  the  southern  regions,  difficulties 
with administrative capacity and an economic imbalance 
between 
the 
separate  collection.  Nevertheless  it  would  be  worth 
exploring further the underlying causes to be able to find 
the  most  efficient  solutions.  Italy  has  been  subjected  to 
sanctions  by  the  EU  Court  of  Justice  for  poor  waste 
management  in  Campania  region,  which  culminated  in 
the  waste  crisis  of  2007;  since  then,  the  separate 
collection  in  the  region  is  steadily  improving,  as  well  as 
recycling. 

Another  factor  influencing  the  differing  geographical 
performance  is  the  variable  waste  and  landfill  gate  fees 
in  the  regions44.  Some  regions  have  also 
applied 
introduced special measures aimed at fostering separate 
collection  or  recycling  operations. In  the Marche  region, 
for example, the landfill tax to be paid by municipalities is 
progressively  reduced  depending  on  the  rate  by  which 
the national separate collection targets are exceeded. In 
Emilia-Romagna,  which  in  2010  reached  19%  organic 
recycling of total municipal waste production, in order to 
promote the use of compost, farmers receive subsidies of 
EUR 150–180 per hectare45. 

In  order  to  support  Italy  in  bridging  the  implementation 
gap,  the  Commission  has  delivered  a  roadmap46  for 
compliance,  in  which  economic  instruments  play  a  key 
role.  For  the  regions  in  need  of  relevant  infrastructure, 
waste management has been subject to Action Plans for 
the  ex-ante  conditionality  for  waste  to  streamline 
financing  from  the  ERDF  between  2014-20.  In  addition, 
EFSI 
improve  environmental 
to 
infrastructure  for  waste47.  ERDF  investments  in  2014-20 
for waste are only aimed at the activities at the top of the 
hierarchy hence excluding landfilling and incineration. 

is  being  used 

The  share  of  incineration  compared  to  other  treatment 
in  201448. 
options  for  municipal  waste  was  21% 
Furthermore,  the  government  was  mandated  to  assess 
the  needs  for  incineration  of  municipal  solid  waste  at 
level49  and  consequently  a  recent  Decree 
national 

Italy  9 

provides a picture of the existing and needed incineration 
capacity  region  by  region  taking  into  account,  inter  alia, 
the  foreseen  reduction  of  waste  production,  and  the 
future  increase  of  separate  collection  in  line  with  the 
national legal obligation (65%)50.  

With a 65.9% of packaging waste being recycled, Italy has 
reached the 2008 target of 55%51. Recovery and recycling 
of  packaging  waste  are  constantly  increasing  since  year 
2000.  A  Decree  has  been  adopted  in  2016  on  measures 
to create an adequate integrated system for the organic 
fraction  of  organic  waste52.  It  is  estimated  by  CIC53that 
EUR  20  million/year 
through  biowaste 
contributing to the circular economy. 
According to a study54, moving towards the targets in the 
Roadmap  on  resource  efficiency55,  could  create  over 
83,400  additional  jobs  and  an  increase  in  the  annual 
turnover of the waste sector by over EUR 8.8 billion. 

is  saved 

Separate collection and recycling are constantly growing 
all over the national territory as shown in Figure 556. 

Figure 5: Regional separate collection rates 

For  packaging  waste,  Italy  applies  Extended  Producer 
Responsibility 
the  national 
(EPR)  by  means  of 
organisation  CONAI.  Different  consortia  have  been 
established  for  paper,  glass,  plastic,  etc..  The  system 
covers  a  large  part  of  the  recycling  in  Italy,  achieving 
increased  volumes  of  recycled  packaging  every  year. 
During 2016 a reform should be introduced to move from 
taxes to tariffs in the waste sector57. 

Regarding waste prevention, since 2013 Italy has adopted 

43 ISPRA Rapporto Rifiuti Urbani Edizione 2015, p.57 
44 Mazzanti M and Montini A (2014),  Waste management beyond the 
Italian north-south divide: spatial analyses of geographical, economic 
and institutional dimensions, in Handbook on waste management T. 
Kinnaman & K. Takeuchi eds. (E. Elgar). 

50 Decree DPCM 10.08.2016 
51 ISPRA Rapporto Rifiuti Urbani Edizione 2015 
52 Decree DCPM 07.03.2016 
53 Consorzio Italiano Compostatori, presentation, Waste Directors, 

45 European Environment Agency 2016, Municipal Waste Management 

Brussels, 26.10.2016 

Country Fact Sheet, p.19 

46 European Commission roadmap  
47 EFSI – Aimag Settore Idrico e Ambiente 
48 Eurostat, Municipal waste and treatment, by type of treatment 

method, accessed October 2016 
49 Decree Law N° 133 of 12.09.2014 

54 Bio Intelligence service, 2011. Implementing EU Waste legislation for 

Green Growth, study for the European Commission 

55 The Roadmap outlines how we can transform Europe's economy into 

a sustainable one by 2050. 

56 ISPRA Rapporto Rifiuti Urbani Edizione 2015, p.36 
57 Programma Nazionale di Riforma 2016, April 2016, p.58 

Environmental Implementation Report – Italy 

 
 
                                                            
 
                                                            
Italy  10 

the National Waste Prevention Programme. On the basis 
of  this  National  Programme,  each  Region  has  adopted 
regional  prevention  plans  that, 
include 
inter  alia, 
measures 
the  use  of  green  public 
procurement  and  the  reuse.  A  specific  Fund  for  project 
financing  for  waste  prevention  and  waste  reduction  has 
been established,  with EUR 513,475  assigned  in  2014  to 
selected projects. 

increase 

to 

Suggested action 

  Introduce  a  national  landfill  tax  or  harmonise  the 
regional taxes to phase-out landfilling of recyclable and 
recoverable  waste.  Use  the  revenues  to  support  the 
separate  collection  and  alternative  infrastructure  but 
avoid  building  excessive 
the 
treatment  of  residual  waste.  Improve  co-operation 
between regions to use waste treatment capacity more 
efficiently. 

infrastructure 

for 

  Focus  on  improving  the  effectiveness  of  the  separate 
collection to increase recycling rates in the regions that 
are lagging behind.  

  Extend and improve the cost-effectiveness, monitoring 

and transparency of existing EPR schemes. 

Environmental Implementation Report – Italy 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
2. Protecting, conserving and enhancing natural capital 

Italy  11 

Nature and Biodiversity 

The  EU  Biodiversity  Strategy  aims  to  halt  the  loss  of 
biodiversity  in  the  EU  by  2020,  restore  ecosystems  and 
their services in so far as feasible, and step up efforts to 
avert  global  biodiversity  loss.  The  EU  Birds  and  Habitats 
Directives  aim  at  achieving  favourable  conservation 
status of protected species and habitats.  

SDG  14  requires  countries  to  conserve  and  sustainably 
use the oceans, seas and marine resources, while SDG 15 
requires  countries  to  protect,  restore  and  promote  the 
sustainable  use  of  terrestrial  ecosystems,  sustainably 
manage  forests,  combat  desertification,  and  halt  and 
reverse land degradation and halt biodiversity loss. 

The  1992  EU  Habitats  Directive  and  the  1979  Birds 
Directive are the cornerstone of the European legislation 
aimed  at  the  conservation  of  the  EU's  wildlife.  Natura 
2000, the largest coordinated network of protected areas 
in  the  world,  is  the  key  instrument  to  achieve  and 
implement the Directives' objectives to ensure the  long-
term  protection,  conservation  and  survival  of  Europe's 
most  valuable  and  threatened  species  and  habitats  and 
the ecosystems they underpin. 

The  adequate  designation  of  protected  sites  as  Special 
Ares  of  Conservation  (SAC)  under  the  Habitats  Directive 
and  as  Special  Protection  Areas  (SPA)  under  the  Birds 
Directive 
is  a  key  milestone  towards  meeting  the 
objectives  of  the  Directives.  The  results  of  Habitats 
Directive Article 17 and Birds Directive Article 12 reports 
and  the  progress  towards  adequate  Sites  of  Community 
Importance (SCI)-SPA and SAC designation58 both in land 
and  at  sea,  should  be  the  key  items  to  measure  the 
performance of Member States. 

In  Italy  2585  sites  have  been  designated  under  the 
Habitats and the Birds Directives. By early 2016, 18.97% 
of the national land area of Italy was covered by Natura 
2000  (EU  average  18.1%),  with  Birds  Directive  SPAs 
covering  13.31%  (EU  average  12.3%)  and  Habitats 
Directive  SCIs  covering  14.21%  (EU  average  13.8%).    By 
2012 Italy designated 523 marine Natura 2000 sites that 
covered  6608.1  km². 
Italy  also  had  88  nationally 
designated Marine Protected Areas covering 26644.9 km² 
which  showed  an  11.1%  overlap  with  the  Natura  2000 
sites.  By  the  end  of  2014  Italy's  marine  Natura  2000 
designations covered 6721 km², showing a slight increase 
from  2012.  Nevertheless,  the  latest  assessment  of  the 
SCIs  part  of  the  Natura  2000  network  shows  that  there 

58 Sites of Community Importance (SCIs) are designated pursuant to 

the Habitats Directive whereas Special Areas of Protection (SPAs) are 
designated pursuant to the Birds Directive; figures of coverage do 
not add up due to the fact that some SCIs and SPAs overlap. Special 
Areas of Conservation (SACs) means a SCI designated by the Member 
States. 

insufficiencies 

are 
components of the network59 (see Figure 660). 

in  designation 

for 

the  marine 

Figure 6: Sufficiency assessment of SCI networks in Italy 
based on the situation until December 201361   

Although the 6-year deadline established by the Habitats 
Directive  to  designate  SACs  and  establish  appropriate 
conservation  objectives  and  measures  has  expired  for 
2281  SCIs,  as  in  May  2016  Italy  had  completed  the  SAC 
designation and related obligations only for 578 SCIs.  

There  are  a  high  number  of  complaints  regarding  the 
implementation of the Nature Directives on degradation 
of  designated  sites,  asserted  bad  quality  of  Appropriate 
Assessments  under  Article  6(3)  Habitats  Directive,  and 
poor  species  protection.  The  experience  of 
the 
the  ERDF  Operational 
Commission 
Programmes 2014-20 is that the appropriate assessments 
were of widely varying quality. This has negative impacts 
on nature but also on business and legal certainty. 

in  evaluating 

According to the latest report on the conservation status 
of habitats and species covered by the Habitats Directive 

59 For each Member State, the Commission assesses whether the 
species and habitat types on Annexes I and II of the Habitats 
Directive, are sufficiently represented by the sites designated to 
date. This is expressed as a percentage of species and habitats for 
which further areas need to be designated in order to complete the 
network in that country. The current data, which were accessed in 
2014-15, reflect the situation up until December 2013. 

60 The percentages in Figure 5 refer to percentages of the total 

number of assessments (one assessment covering 1 species or 1 
habitat in a given biographical region with the Member State); if a 
habitat type or a species occurs in more than 1 Biogeographic region 
within a given Member State, there will be as many individual 
assessments as there are Biogeographic regions with an occurrence 
of that species or habitat in this Member State. 

61 European Commission, internal assessment. 

Environmental Implementation Report – Italy 

 
 
 
                                                            
 
                                                            
(covering  the  period  2007-12)62,  only  34%  of  the 
assessments for plant species and 44% for animal species 
indicate  a  favourable  conservation  status63.  For  habitat 
types 
the  percentage  of  assessments  showing  a 
favourable conservation status is only 22% (EU 27: 16 %), 
while  40% 
(EU  27:  47%)  are  considered  to  be 
unfavourable–inadequate and 27% are see unfavourable 
– bad (EU 27: 30%). This is depicted in Figure 764. 

Figure 7: Conservation status of habitats and species in 
Italy in 2007/2013 (%)65 

Italy  12 

conservation measures is particularly low (see section 4). 
This  could  be 
improved  by  administrative  capacity 
building.  A  recently  adopted  LIFE  Integrated  Project 
(GESTIRE  2020)  creates  an 
integrated  management 
structure  for  achieving  conservation  objective  for  the 
Lombardy  Natura  2000  regional  network.  The  project 
aims 
the  Lombardy  Prioritised  Action 
Framework  (PAF)  in  the  following  ways:  coordinate 
management; integrate regional policies; train personnel 
working;  raise  public  awareness;  and  plan  interventions 
to  conserve  biodiversity,  such  as  enhancing  connectivity 
and tackling invasive alien species.67 

to  update 

Figure  8:  Short-term  population  trend  of  breeding  and 
wintering bird species in Italy in 2012 (%)68 

For  birds,  Figure  8  demonstrates  that  42%  of  the 
breeding species showed short-term increasing or stable 
population  trends  (for  wintering  species  this  figure  was 
73%). 

The  lack  of  adequate  resources  to  support  appropriate 
land  management  and  conservation  measures 
is 
acknowledged  as  a  major  obstacle  to  achieve  the 
objectives  of  the  Nature  Directives.  In  2007-13  the 
from  ERDF  and  EAFRD66 
for  nature 
disbursement 

62 The core of the ‘Article 17’ report is the assessment of conservation 
status of the habitats and species targeted by the Habitats Directive. 

63 Conservation status is assessed using a standard methodology as 

being either ‘favourable’, ‘unfavourable-inadequate’ and 
‘unfavourable-bad’, based on four parameters as defined in Article 1 
of the Habitats Directive.  

64 Please note that a direct comparison between 2007 and 2013 data is 
complicated by the fact that Bulgaria and Romania were not covered 
by the 2007 reporting cycle, that the ‘unknown’ assessments have 
strongly diminished particularly for species, and that some reported 
changes are not genuine as they result from improved data / 
monitoring methods. 

65 These figures show the percentage of biogeographical assessments 
in each category of conservation status for habitats and species (one 
assessment covering 1 species or 1 habitat in a given biographical 
region with the Member State), respectively. The information is 
based on Article 17 of the Habitats Directive reporting - national 
summary of Italy 

66 European Agricultural Fund for Rural Development 

Persistent data gaps exist for the forestry sector: data on 
annual  wood  removals  have  not  been  reported  to  the 
'Joint Forest Sector Questionnaire' for several years. This 
makes  it  difficult  to  ascertain  whether  forest  harvesting 
rates  are  within  the 
limits  of  Sustainable  Forest 
Management. No information is available on the share of 
forest  area  under  management  plan  or  equivalent  (no 
figures for the 2010 reporting period). 

Suggested action 

  Complete the Natura 2000 designation process and put 
in place clearly defined conservation objectives and the 
necessary  conservation  measures  for  the  sites  and 
provide  adequate  resources  for  their  implementation 
in  order  to  maintain/restore  species  and  habitats  of 
community interest to a favourable conservation status 
across their natural range.  
  Develop  and  promote 

streamlined 
implementation  approaches,  in  particular  as  regards 
site  and  species  permitting  procedures,  ensuring  the 
necessary  knowledge  and  data  availability.  Strengthen 
communication with stakeholders. 

smart  and 

67 GESTIRE 2020 LIFE integrated project  
68 Article 12 of the Birds Directive reporting - national summary of Italy 

Environmental Implementation Report – Italy 

 
 
 
                                                            
 
                                                            
  Build  capacity  for  completion  and  implementation  of 
Management Plans, as well as for improving the overall 
quality of appropriate assessments.  

  Use  the  available  funds,  namely  ERDF  and  EAFRD,  to 
conservation 

nature 

implement  well-designed 
measures. 

Estimating Natural Capital 

The EU Biodiversity Strategy to 2020 calls on the Member 
States  to  map  and  asses  the  state  of  ecosystems  and 
their services69 in their national territory by 2014, assess 
the  economic  value  of  such  services,  and  promote  the 
integration of these values into accounting and reporting 
systems at EU and national level by 2020. 

The  four  steps  of  the  Mapping  and  Assessment  of 
Ecosystems  and  Their  Services  (MAES)  process  are:  1) 
map  ecosystems;  2)  assess  the  condition  of  ecosystems; 
3)  assess  the  ecosystem  services;  and  4)  make  an 
integrated  ecosystem  assessment  based  on  these  data. 
Italy  is  currently  in  the  third  phase  of  the  process.  The 
Ministry  of  the  Environment  has  provided  financial 
support  to  universities  and  scientific  societies  for  the 
implementation of MAES. Italy is also very involved in the 
assessment of cultural services and urban ecosystems. 

and 

capital 

interest 

committee 

Italy  has  shown  a  high 
in  natural  capital 
accounting. The Ministry of the Environment has set up a 
an 
natural 
environmental  accounting  project  for  protected  areas  in 
Italy  which  should  provide  a  framework  for  pursuing  a 
natural  capital  accounting  process  at  the  national  level. 
implementation  of  the  Collegato 
As  part  of  the 
Ambientale, a decree should have been issued in 2016 on 
estimating ecosystem and environmental capital70,71. 

launched 

Suggested action 

  Provide  resources  for  the  mapping  and  assessment  of 
ecosystem services, their valuation and integration into 
natural capital accounting systems. 

Italy  13 

Green infrastructure  
The  EU  strategy  on  green  infrastructure72  promotes  the 
incorporation  of  green  infrastructure  into  related  plans 
and  programmes  to  help  overcome  fragmentation  of 
habitats  and  preserve  or  restore  ecological  connectivity, 
enhance  ecosystem  resilience  and  thereby  ensure  the 
continued provision of ecosystem services. 

Green  Infrastructure  provides  ecological,  economic  and 
social  benefits  through  natural  solutions.  It  helps  to 
understand the value of the benefits that nature provides 
to human society and to mobilise investments to sustain 
and enhance them. 

of 

the 

Environment 

Italy considers that Green Infrastructure implementation 
should  start  with  protected  areas,  which  are  crucial  to 
conserve  natural  capital,  implement  sustainable  tourism 
and use traditional forms of agriculture and industry. The 
Ministry 
for 
implementing  the  Green  Infrastructure  Strategy  has 
commissioned  the  development  of:  a  methodological 
restoration 
framework 
priorities  and  promoting  Green 
Infrastructure;  a 
restoration  project  on  freshwater  ecosystems;  and  two 
pilots for the urban/peri-urban Rome Metropolitan Area.  
Improving  connections  between  natural  and  cultural 
capital was also underlined by the Charter of Rome.73 

identifying  ecosystem 

responsible 

for 

The  importance  of  the  linkages  between  culture  and 
nature  that  is  a  central  feature  of  Italian  policy  is 
exemplified by the Corona Verde project in the region of 
Piedmont. The project which involves 93 municipalities is 
designed to develop Green Infrastructure integrating the 
Corona  di  Delitie  system  of  royal  residences  within  the 
Turin green-belt. The Corona Verde project will provide a 
wide  range  of  benefits  e.g.  protection  against  soil 
erosion,  enhancement  of  tourism  and  the  reduction  of 
atmospheric  pollution.  Another  example, 
the 
EcoSistema  Filtro  a  constructed  wetland  in  Sardinia  (& 
Natura 2000 site), built in 2004 to filter treated water74. 
Italy  is  currently  involved  in  the  EU  co-financed  Green 
Surge  project75,  and  some  Regions  use  ERDF  and  EAFRD 
to increase green infrastructure and wildlife corridors. 

is 

Soil protection  

further  soil  degradation  and 

The  EU  Soil  Thematic  Strategy  highlights  the  need  to 
ensure  a  sustainable  use  of  soils.  This  requires  the 
prevention  of 
the 
preservation of its functions, as well as the restoration of 
degraded  soils.  The  2011  Road  Map  for  Resource-
Efficient  Europe,  part  of  Europe  2020  Strategy  provides 
that  by  2020,  EU  policies  take  into  account  their  direct 

72 European Union, Green Infrastructure — Enhancing Europe’s Natural 

69 Ecosystem services are benefits provided by nature such as food, 
clean water and pollination on which human society depends. 

70 Programma Nazionale di Riforma 2016, April 2016, p.58 
71 Ministry of Environment, Collegato Ambientale 

Capital, COM/2013/0249 

73 Ministry of Environment, Carta di Roma  
74 EcoSistema Filtro  
75 Green Surge case studies Milan & Bari 

Environmental Implementation Report – Italy 

 
 
 
 
 
 
 
                                                            
                                                            
and  indirect  impact  on  land  use  in  the  EU  and  globally, 
and  the  rate  of  land  take  is  on  track  with  an  aim  to 
achieve no net land take by 2050. 

SDG  15  requires  countries  to  combat  desertification, 
restore degraded land and soil, including land affected by 
desertification, drought and floods, and strive to achieve 
a land-degradation-neutral world by 2030. 

Italy  14 

many  regions.  Indeed  Italy  has  an  average  soil  water 
erosion rate (8.4 tonnes per ha per year in 2010), which is 
well above the EU average (2.4 tonnes per ha per year).78 
Figure 9: Land Cover types in Italy 201279 

Soil is an important resource for life and the economy. It 
provides  key  ecosystem  services  including  the  provision 
of food, fibre and biomass for renewable energy, carbon 
sequestration,  water  purification  and  flood  regulation, 
the provision of raw and building material. Soil is a finite 
and  extremely 
increasingly 
degrading  in  the  EU.  Land  taken  by  urban  development 
and infrastructure is highly unlikely to be reverted to its 
natural  state;  it  consumes  mostly  agricultural  land  and 
increases  fragmentation  of  habitats.  Soil  protection  is 
indirectly  addressed  in  existing EU policies  in  areas  such 
as  agriculture,  water,  waste,  chemicals,  and  prevention 
of industrial pollution. 

resource  and 

fragile 

There  are  still  not  EU-wide  datasets  enabling  the 
provision of benchmark indicators for soil organic matter 
decline, contaminated sites, pressures on soil biology and 
diffuse  pollution.  An  updated  inventory  and  assessment 
of soil protection policy instruments in Italy and other EU 
Member  States  is  being  performed  by  the  EU  Expert 
Group on Soil Protection. 

The  main  soil  degradation  processes  occurring  in  Italy 
are:  erosion/disaggregation,  compaction,  salinization, 
contamination,  landslides,  biodiversity  decline/loss,  soil 
consumption/sealing, & decline/loss of organic matter.  

In Italy there is a growing awareness of the importance of 
soil  protection  both  at,  political  and  scientific  level.  For 
example,  it  is  participating  in  the  UNCCD80  pilot  project 
on target and indicators of Land Degradation Neutrality.  

Artificial  land  cover  is  used  for  settlements,  production 
systems and infrastructure. It may itself be split between 
built-up areas (buildings) and non-built-up areas (such as 
linear transport networks and associated areas).  Figure 9 
shows the different land cover types in Italy in 2012. 
With a mean annual land take rate76 of 0.37% (driven by 
urban  sprawl and  infrastructures)  over  the  period  2006-
12, the speed of urban development in Italy is just below 
the  EU  average  (0.41%),  representing  5786  hectares  per 
year.    Soil-sealing  over  wide  areas,  due  to  excessive 
urban 
increased 
has 
hydrogeological  risk.  In  terms  of  the  percentage  of  built 
up  land,  Italy  ranked  the  4th  highest  in  the  EU  with 
around 2.7% in 201277. The soil sealing has increased the 
vulnerability  to  landslides  and  flooding  in  several  areas, 
intensity  and 
which 
frequency  of  flood  events  and  related  damages.  This 
problem  is  exacerbated  by  low  soil  organic  matter  in 

development, 

significantly 

translates 

increased 

into  an 

76 European Environment Agency  Draft results of CORINE Land Cover 

(CLC) inventory 2012 ; mean annual land take 2006-12 as a % of 2006 
artificial land. 

77 Eurostat, Built up Areas, accessed June 2016  

Relevant  legislative  instruments  for  soil  protection  are 
approved  at  national  level  or  indirectly  through  the 
law.  Furthermore,  many  soil 
transposition  of  EU 
protection  measures 
in  policy 
included 
in  Italy  are 
instruments  that  are  not  directly  connected  to  the 
protection  of  soil. 
Italian  Parliament 
In  2016  the 
discussed a Decree Law on the containment of the loss of 
land and reuse of soil built on81. Furthermore, Italy has a 
zero  objective  for  soil  consumption  by  2050  as  required 
by  the  Resource  Efficient  Europe  Roadmap.  As  regards 
soil contamination, Italy has identified under a 1998 law82 
a  number  of  contaminated  sites  (SIN)  which  require 
the 
priority 
management of these sites respects EU waste legislation.  

remediation. 

important 

that 

is 

It 

78 Eurostat, Soil water erosion rate, Figure 2, accessed November 2016 
79 European Environment Agency, Land cover 2012 and changes 

country analysis [publication forthcoming] 
80 UN Convention to Combat Desertification 
81 Ministry of Environment – Press Release 12.05.16 
82 Law 426/1998 has identified the so-called Siti di Interesse Nazionale 

(SIN), i.e. highly polluted sites in Italy which need to be 
decontaminated. For example, the industrial area of Taranto, which 
comprises the ILVA steel plant, has been included in the list of SIN. 

Environmental Implementation Report – Italy 

 
 
                                                            
 
                                                            
The  EAFRD  should  help  to  enhance  soil  organic  matter 
and reduce soil erosion, while the ERDF will support the 
rehabilitation of industrial sites and contaminated land.  

from  land-based  sources,  such  as  discharges  of  excess 
nutrients  and  hazardous  substances,  marine  litter,  over-
fishing, and degradation of critical habitats. 

Italy  15 

Marine protection 

The EU Coastal and Marine Policy and legislation require 
that by 2020 the impact of pressures on marine waters is 
reduced  to  achieve  or  maintain  good  environmental 
status and coastal zones are managed sustainably. 

SDG  14  requires  countries  to  conserve  and  sustainably 
use  the  oceans,  seas  and  marine  resources 
for 
sustainable development. 
The Marine Strategy Framework Directive (MSFD)83 aims 
to  achieve  Good  Environmental  Status  (GES)  of  the  EU's 
marine  waters  by  2020  by  providing  an  ecosystem 
approach  to  the  management  of  human  activities  with 
impact  on  the  marine  environment.  The  Directive 
requires  Member  States  to  develop  and  implement  a 
strategy  for  their  marine  waters,  and  cooperate  with 
Member States sharing the same region or subregion. 

As part of their marine strategies, Member States had to 
make  an  initial  assessment  of  their  marine  waters, 
determine  GES84  and  establish  environmental  targets  by 
July  2012.  They  also  had  to  establish  monitoring 
programmes for the on-going assessment of their marine 
waters  by  July  2014.  The  next  element  of  their  marine 
strategy is to establish a Programme of Measures (2016). 
The  Commission  assesses  whether  these  elements 
constitute  an  appropriate  framework  to  meet  the 
requirements of the MSFD. 

in 

and 

its  marine  waters 

In 2012, Italian marine protected areas covered 30366.9 
the 
square  kilometres  of 
Mediterranean  Sea85.  Italy  has  also  one  of  the  longest 
coastlines in the EU. Italy’s marine waters are part of the 
marine  region  of  the  Mediterranean  Sea  and  cover  the 
sub-regions  of  the  Adriatic  Sea,  the  Ionian  Sea  and  the 
Sea 
Central  Mediterranean 
the  Western 
Mediterranean  Sea.  Italy 
is  party  to  the  Barcelona 
Convention.  The  Mediterranean  Sea  region  has  been 
identified by the EEA in its 2015 State of the Environment 
report  as  one  of  the  areas  most  responsive  to  climate 
change due to water scarcity, concentration of economic 
activities  in  coastal  areas,  and  reliance  on  climate-
sensitive  agriculture.  The  introduction  of  invasive  alien 
species  presents 
the 
Mediterranean  Sea  region  with  the  number  of invasive 
alien  species  increasing  significantly  since  1970.  Finally, 
the  unique  biodiversity  is  also  threatened  by  pollution 

important 

threat 

an 

in 

83 European Union, Marine Strategy Framework Directive 2008/56/EC 
84 The MSFD defines Good Environmental Status (GES) in Article 3 as:  
“The environmental status of marine waters where these provide 

ecologically diverse and dynamic oceans and seas which are clean, 
healthy and productive” 

in 

the  MSFD.  However, 

In 2012, Italy has determined GES for all the descriptors 
the  Commission's 
listed 
assessment  found  that  some  GES  definitions  are  to  be 
developed.  In  particular,  the  GES  definitions  for  marine 
litter and underwater noise were found to be below the 
minimum requirement or lack specification/ambition. 

Italy  established  a  monitoring  programme  of  its  marine 
waters  in  2014.  The  monitoring  programmes  for  all 
descriptors  apart  from  hydrographical  changes  and 
marine  litter  need  further  refinement  and  development 
to  constitute  an  appropriate  framework  to  monitor 
progress towards GES status and targets. In addition, Italy 
reported that most of its monitoring programme will only 
be adequate to measure progress towards GES by 2018, 
the date by which the next assessment of their waters is 
due. In its reports on the implementation of the MSFD86, 
the Commission provided guidance to assist Italy. Italy is 
involved in various EU supported research projects87. 

The  new  National  Plan  on  Ports  includes  activities  for 
recovery and preservation of the seabed and starting up 
monitoring programmes of protected sites near ports88. 

Suggested action 

  Continue  work  to  improve  the  definitions  of  GES, 
including  through  regional  cooperation  by  using  the 
work of the relevant Regional Sea Convention. 
assessing 

(and 
approaches 
quantifying) impacts from the main pressures in order 
to  lead  to  improved  and  more  conclusive  assessment 
results for 2018 reporting. 

  Further 

develop 

  Continue to integrate existing monitoring programmes 
required  under  other  EU  legislation  and  to  implement 
other  joint  monitoring  programmes,  where  they  exist, 
developed  at  (sub)regional  level,  for  instance  by  the 
Barcelona Convention.  

  Enhance  comparability  and  consistency  of  monitoring 
methods  within  Italy's  marine  region  and  address 
knowledge gaps. 
  Ensure  that  all  of 

is 
implemented  without  delay,  and  is  appropriate  to 
monitor progress towards the GES. 

its  monitoring  programme 

86 Report from the Commission "The first phase of implementation of 

the Marine Strategy Framework Directive (2008/56/EC) - The 
European Commission's assessment and guidance" COM(2014)097 & 
Commission Staff Working Document Accompanying the Commission 
Report assessing Member States' monitoring programmes under the 
Marine Strategy Framework Directive (COM(2017)3 and SWD(2017)1 
final) 

87 RTD project: KNOWSEAS; MYOCEAN; VECTORS; HERMIONE; 

85 2012 Data provided by the European Environmental Agency – not 

CORALFISH; PERSEUS 

published 

88 Piano Strategico Nazionale della Portualità e della Logistica  p.189 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
Italy  16 

3. Ensuring citizens' health and quality of life 

Air quality 

The  EU  Clean  Air  Policy  and  legislation  require  that  air 
quality  in  the  Union  is  significantly  improved,  moving 
closer  to  the  WHO  recommended  levels.  Air  pollution 
and its impacts on ecosystems and biodiversity should be 
further reduced with the long-term aim of not exceeding 
critical  loads  and  levels.  This  requires  strengthening 
efforts  to  reach  full  compliance  with  Union  air  quality 
legislation  and  defining  strategic  targets  and  actions 
beyond 2020. 

The  EU  has  developed  a  comprehensive  suite  of  air 
legislation89,  which  establishes  health-based 
quality 
standards  and  objectives  for  a  number  of  air  pollutants. 
As  part  of  this,  Member  States  are  also  required  to 
information  on  ambient 
ensure 

that  up-to-date 

the currently applicable national emission ceilings91.  

At  the  same  time,  air  quality  in  Italy  continues  to  give 
cause  for  concern.  For  the  year  2013  in  Italy,  the 
European  Environment  Agency  estimated  that  about  66 
630  premature  deaths  were  attributable 
fine 
particulate  matter  concentrations92,  3  380  to  ozone 
concentration93  and  21  040 
to  nitrogen  dioxide 
concentrations94,95.This is due also to exceedances above 
the EU air quality standards, such as shown in Figure 1096. 

to 

These  problems  became  an  extreme  concern 
in 
November-December  of  2015  with  particulate  matter 
levels well above the EU daily limit values in Milan, Rome 
and Naples leading to the closing of these cities to traffic. 
On  the  30  December  2015,  the  Environment  Ministry, 
Regions and Municipalities signed an anti-smog protocol, 

Figure 10: Attainment situation for PM10, NO2 and O3 in 2014 

concentrations  of  different  air  pollutants  is  routinely 
made  available  to  the  public.  In  addition,  the  National 
Emission  Ceilings  Directive  provides 
for  emission 
reductions  at  national  level  that  should  be  achieved  for 
main pollutants. 

The  emission  of  several  air  pollutants  has  decreased 
significantly  in  Italy90.  Reductions  between  1990  and 
2014  for  sulphur  oxides  (-93%),  nitrogen  oxides  (-61%), 
ammonia (-17%) as well as volatile organic compounds (-
57%) ensure air emissions for these pollutants are within 

89 European Commission, 2016. Air Quality Standards 
90 See EIONET Central Data Repository and Air pollutant emissions data 

viewer (NEC Directive) 

91The current national emission ceilings apply since 2010 (Directive 
2001/81/EC); revised ceilings for 2020 and 2030 have been set by 
Directive (EU) 2016/2284 on the reduction of national emissions of 
certain atmospheric pollutants, amending Directive 2003/35/EC and 
repealing Directive 2001/81/EC. 

92 Particulate matter (PM) is a mixture of aerosol particles (solid and 
liquid) covering a wide range of sizes and chemical compositions. 
PM10 (PM2.5) refers to particles with a diameter of 10 (2.5) 
micrometres or less. PM is emitted from many human sources, 
including combustion. 

93 Low level ozone is produced by photochemical action on pollution 

and it is also a greenhouse gas 

94 NOx is emitted during fuel combustion e.g. from industrial facilities 
and the road transport sector. NOx is a group of gases comprising 
nitrogen monoxide (NO) and nitrogen dioxide (NO2). 

95 European Environment Agency, 2016. Air Quality in Europe – 2016 
Report. (Table 10.2, p.60, please see details in this report as regards 
the underpinning methodology) 

96 Based on European Environment Agency, 2016. Air Quality in Europe 

– 2016 Report. (Figures 4.1, 5.1 and 6.1) 

Environmental Implementation Report – Italy 

 
 
 
                                                            
                                                            
 
Italy  17 

and in 2016 a specific agreement was made for Bologna 
under this protocol97. 

concentrations), 
related emissions - in particular in urban areas. 

inter  alia,  by  reducing  transport 

In  2013,  Italy  had  over  60%  of  the  urban  population 
resident  in  areas  exposed  to  PM10  concentrations  over 
the daily limit value (50 µg/m3 on more than 35 days in a 
year),  substantially  worse  than  the  EU  average  of 
16.3%98. An emerging issue in Italy is high PM emissions 
associated  with  the  increasing use  of  fuelwood  in  small-
scale  combustion  units.  Furthermore,  for  several  air 
quality  zones  the  long-term  objectives  regarding  ozone 
concentration are not being met99. 

The  persistent  breaches  of  air  quality  requirements  (for 
PM10  and  NO2),  which  have  severe  negative  effects  on 
health  and  environment,  are  being  followed  up  by  the 
European  Commission  through  infringement  procedures 
covering  all  the  Member  States  concerned,  including 
Italy. The aim is that adequate measures are put in place 
to bring all zones into compliance. 

It is estimated that the health-related external costs from 
air  pollution  are  above  EUR  47  billion/year  (income 
adjusted, 2010), which include not only the intrinsic value 
of  living  a  full  healthy  life  but  also  direct  costs  to  the 
economy.  These  direct  economic  costs  relate  to  17 
million workdays lost each year due to sickness related to 
air pollution, with associated costs for employers of EUR 
2400  million/year 
for 
healthcare  of  above  EUR  185  million/year  (income 
adjusted, 2010),  and  for agriculture (crop  losses)  of  EUR 
418 million/year (2010)100. 

(income  adjusted,  2010), 

Licenses are issued at regional and state level through a 
so  called  integrated  environmental  authorization  (AIA). 
However evidence shows that the implementation of the 
conditions  prescribed 
is  not  always 
satisfactory  and  requires  the  intervention  of  the  central 
authorities  and/or  the  European  Commission  such  as 
illustrated by the ILVA Taranto case.  

in  the  AIAs 

Suggested action 

  Maintain  downward  emissions  trends  of  air  pollutants 
in order to achieve full compliance with air quality limit 
values  -  and  reduce  adverse  air  pollution  impacts  on 
health, environment and economy. 

  Reduce nitrogen oxide (NOx) emissions to comply with 
currently  applicable  national  emission  ceilings101 
and/or  to  reduce  nitrogen  dioxide  (NO2)  (and  ozone 

97 Ministry of Environment – Press Release 01.06.16 
98 Eurostat, Safeguarding Clean Air, accessed June 2106  
99 See The EEA/Eionet Air Quality Portal and the related Central Data 

Repository 

100 These figures are based on the Impact Assessment for the 
European Commission Integrated Clean Air Package, 2013 

101 Under the provisions of the revised National Emission Ceilings 
Directive, Member States now may apply for emission inventory 
adjustments. Pending evaluation of any adjustment application, 
Member States should keep emissions under close control with a 
view to further reductions. 

  Reduce PM10 emission and concentration, inter alia, by 
reducing  emissions  related  to  energy  and  heat 
generation  using  solid  fuels,  to  transport  and  to 
agriculture. 

Noise 

The  Environmental  Noise  Directive  provides  for  a 
common  approach  for  the  avoidance,  prevention  and 
reduction  of  harmful  effects  due  to  exposure  to 
environmental noise. 

Excessive  noise  is  one  of  the  main  causes  of  health 
issues102. To alleviate this, the EU acquis sets out several 
requirements, 
including  assessing  the  exposure  to 
environmental  noise  through  noise  mapping,  ensuring 
that information on environmental noise and its effects is 
made  available  to  the  public,  and  adopting  action  plans 
with  a  view  to  preventing  and  reducing  environmental 
noise  where  necessary  and  to  preserving  the  acoustic 
environment quality where it is good. 

Italy's 
implementation  of  the  Environmental  Noise 
Directive  is  significantly  delayed.  The  noise  mapping103 
for  the  most  recent  reporting  round,  for  the  reference 
year 2011, is only 62% complete for agglomerations, 50% 
for major airports, and only partially completed for major 
roads  and  major  railways.  Action  Plans  for  noise 
management  in  the  current  period  have  been  adopted 
for only 3% of agglomerations, and are missing for all of 
major airports, major roads and major railways.  

Suggested action 

  Complete missing noise action plans and maps 

Water quality and management 

(including  surface  and  ground  waters) 

The  EU  water  policy  and  legislation  require  that  the 
impact  of  pressures  on  transitional,  coastal  and  fresh 
is 
waters 
significantly  reduced  to  achieve,  maintain  or  enhance 
good  status  of  water  bodies,  as  defined  by  the  Water 
Framework Directive; that citizens throughout the Union 
benefit from high standards for safe drinking and bathing 
water;  and  that  the  nutrient  cycle  (nitrogen  and 
phosphorus)  is  managed  in  a  more  sustainable  and 
resource-efficient way. 

102 WHO/JRC, 2011, Burden of disease from environmental noise, 

Fritschi, L., Brown, A.L., Kim, R., Schwela, D., Kephalopoulos, S. (eds), 
World Health Organization, Regional Office for Europe, Copenhagen, 
Denmark 

103 The Noise Directive requires Member States to prepare and 

publish, every 5 years, noise maps and noise management action 
plans for agglomerations with more than 100,000 inhabitants, and 
for major roads, railways and airports. 

Environmental Implementation Report – Italy 

 
 
                                                            
 
 
                                                            
SDG  6  encourages  countries  to  ensure  availability  and 
sustainable management of water and sanitation for all. 

chemical  status108.  In  addition,  53%  of  groundwater 
bodies (32% unknown) are in good quantitative status109.  

Italy  18 

The  main  overall  objective  of  EU  water  policy  and 
legislation  is  to  ensure  access  to  good  quality  water  in 
sufficient  quantity  for  all  Europeans.  The  EU  water 
acquis104 seeks to ensure good status of all water bodies 
across Europe by addressing pollution sources (from e.g. 
agriculture, urban areas and industrial activities), physical 
and  hydrological modifications to  water  bodies)  and  the 
management of risks of flooding.  

Italy  is  a  water-stressed  country.  Most  of  the  water 
abstracted  in  Italy  is  for  consumptive  uses  especially 
irrigation.105 Water scarcity and drought risk are typical of 
southern regions. In the North, in contrast, where water 
resources have been physically abundant, climate change 
effects  together  with  water  withdrawal 
levels  have 
recently giving rise to water scarcity concerns. 

River  Basin  Management  Plans 
(RBMPs)  are  a 
requirement  of  the  Water  Framework  Directive  and  a 
means  of  achieving  the  protection,  improvement  and 
sustainable use of the water environment across Europe. 
This includes surface freshwaters such as lakes and rivers, 
groundwater,  estuaries  and  coastal  waters  up  to  one 
nautical mile. 

to 

the 

Italian  authorities, 

According 
the  second 
generation  of  RBMPs  provide  an  improved  monitoring 
system and the programs of measures reflect better the 
pressures  on  the  water  bodies.  However,  as  the 
Commission  has  not  yet  been  able  to  validate  this 
information for all Member States it is not reported here. 

In its first generation of RBMPs Italy reported the status 
of 7644 rivers, 38 lakes, 181 transitional, 489 coastal and 
733  groundwater  bodies.  Only  29%  of  natural  surface 
water  bodies  achieve  a  good  or  high  ecological  status106 
(while the status of 56% is unknown) and 16% of heavily 
modified or artificial water bodies achieve a good or high 
ecological potential (44% unknown). Only 18% of surface 
water  bodies  (79%  unknown),  21%  of  heavily  modified 
and artificial water bodies107 (66% unknown) and 49% of 
(25%  unknown)  achieve  good 
groundwater  bodies 

The  main  pressure  on  Italian  waters  comes  from  diffuse 
sources  that  affect  38%  of  surface  water  bodies110.  The 
latest  data  show  that  26%  of  water  bodies  are  affected 
by  point  sources,  16%  by  water  abstraction  and  8%  by 
flow  regulation.  Italian  waters  are  affected  by  a  broad 
range  of  economic  activities.  These  include:  industry, 
both abstractions and point source pollution; agriculture, 
point and diffuse source pollution from livestock raising, 
as  well  as  abstractions  and  diffuse  source  pollution  for 
crops;  coastal  works  and  recreation,  affecting  transition 
and  coastal  waters.  An  example  is  the  sub-basin  of  the 
Ticino  River  –  water  bodies  are  affected  by  25  different 
types of pressures, from urban wastewater discharges to 
abstractions to engineering works.  

Significant  differences  in  terms  of  pressures  are  seen 
across  the  country,  for  example,  diffuse  sources  from 
agriculture  are  a  significant  pressure  for  more  than  half 
of the surface water bodies in Northern Apennines (55% 
of  water  bodies),  Serchio  (71%)  and  Sicily  (53%)  river 
basin  districts  but  much  less  in    Sardinia  (27%)  or  the 
Eastern  Alps  (29%).  Water  abstraction  is  an  important 
pressure  in  Southern  Apennines  (28%  of  water  bodies 
affected)  and  Northern  Apennines  (24%)  compared  to 
Eastern  Alps,  Sardinia  and  Sicily  (all  less  than  10%  of 
water bodies affected).  
The latest data show that 99%111 of large drinking water 
supplies  reach  minimum  standards.  However,  punctual 
drinking  water  problems  exist  (arsenic  and  fluoride  in 
Lazio).  

As  shown  in  Figure  11,  in  2015,  in  Italy  out  of  5518 
bathing waters, 90.5 % were of excellent quality, 4.9% of 
good  quality  and  1.9  %  of  sufficient  quality.  95  bathing 
waters  were  of  poor  quality  or  non-compliant  while  it 
was  not  possible  to  assess  the  remaining  55  bathing 
waters112. 

104 This includes the Bathing Waters Directive (2006/7/EC); the Urban 

Waste Water Treatment Directive (91/271/EEC) concerning 
discharges of municipal and some industrial waste waters; the 
Drinking Water Directive (98/83/EC) concerning potable water 
quality; the Water Framework Directive (2000/60/EC) concerning 
water resources management; the Nitrates Directive (91/676/EEC) 
and the Floods Directive (2007/60/EC) 

108 Good chemical status is defined in the Water Framework Directive 
referring to compliance with all the quality standards established for 
chemical substances at European level. 

109 For groundwater, a precautionary approach has been taken that 
comprises a prohibition on direct discharges to groundwater, and a 
requirement to monitor groundwater bodies. 

105 European Commission, 2016. EU Resource Efficiency Scoreboard 

110 Diffuse pollution comes from widespread activities with no one 

2015 

106 Good ecological status is defined in the Water Framework 

Directive, referring to the quality of the biological community, the 
hydrological characteristics and the chemical characteristics. 
107 Many European river basins and waters have been altered by 

human activities, such as land drainage, dredging, flood protection 
and, building of dams. 

discrete source, e.g. acid rain, pesticides, urban run-off, etc. 

111 Commission's Synthesis Report on the Quality of Drinking Water in 
the Union examining Member States' reports for the 2011-2013 
period, foreseen under Article 13(5) of Directive 98/83/EC; 
COM(2016)666, p.13 

112 European Environment Agency, 2016. European bathing water 

quality in 2015, p. 26 

Environmental Implementation Report – Italy 

 
 
                                                            
 
 
 
                                                            
Figure 11: Bathing water quality 2012 – 15113 

treatment  currently  estimated  by  Italy  at  EUR  4.6 
billion116. 

Italy  19 

Figure  12:  Urban  waste  water  Italian  situation  2012  – 
Final deadline 2005117 

There are considerable issues of non-compliance with the 
Urban  Waste  Water  Treatment  Directive  (UWWTD). 
Recent efforts have been made, but almost one third of 
all  agglomerations  above  2000  p.e.  (in  a  total  of 
approximately  3200)  are  subject  to  EU  infringement 
procedures.  It  shows  that  Italy  has  not  achieved  the 
obligation to reach 100% compliance by 2005.  

Figure  12  shows  the  total  generated  load  at  Member 
State level (in population equivalent (p.e.)  and regardless 
of  agglomerations)  and  the  load  that  remains  to  be 
addressed by Italy.  

the 

and 

need 

In  addition,  reporting  under  the  UWWTD  and  the 
Drinking  Water  Directive  reveal  discrepancies  between 
regions 
of 
implementation  at  regional  level,  especially  with  regard 
to  monitoring.  Urban  wastewater  treatment  data  were 
completely  or  partially  missing  from  some  regions, 
rendering  it  impossible  to  calculate  compliance  rates  at 
national level114.  

improvement 

for 

intervening 

Activities  to  solve  these  issues  are  being  implemented. 
The ERDF will be used in the southern Italy to address the 
extensive  UWWTD  non-compliance,  in  conjunction  with 
the  National  Cohesion  and  Development  Fund.  EFSI  is 
also 
infrastructure. 
Furthermore, the Decree-Law Unblock Italy115 speeds up 
investments in water and flooding through administrative 
reforms  and  in  2016  special  commissioners  to  speed  up 
compliance  with  the  UWWTD  have  been  appointed. 
Significant investments are needed for urban wastewater 

improve  water 

to 

113 European Environment Agency, State of bathing water country 

reports -Italy, 2016 

114 European Commission, Eighth Report on the Implementation Status 
and the Programmes for Implementation of the Urban Waste Water 
Directive (COM (2016)105 final) and Commission Staff Working 
Document accompanying the report (SWD(2016)45 final). 

In  addition 

Groundwater and surface waters pollution is also a major 
challenge. 
to  wastewater  discharges, 
agriculture,  and  in  particular  the  use  of  digestate  from 
feedstock, 
anaerobic  digestion  of  a  biodegradable 
especially  in  areas  characterized  by  intensive  livestock 
production,  exerts  a  significant  pressure  on  water 
resources.  A  particular  effect  is  eutrophication  in  the 
Adriatic  Sea.  Closing  the  implementation  gap  in  the 
Nitrates  Directive  would  address  this  situation,  but 
further  efforts  both  in  terms  of  monitoring  potentially 
vulnerable  areas  and  enforcing  existing  measures,  need 
to  be  done  at  regional  level  making  use  of  the  EAFRD, 
which  could  also  support  supplementary  measures  in 
accordance with the Water Framework Directive.   

it 

is  urgent  to 

There is a need for improvements in the efficiency of the 
water supply system, in particular the high leakage rates 
(27% nationally, the figure is closer to 50% in the south) 
and 
in  renewal  of  water 
invest 
infrastructure  (the  average  age  is  30  years).118  Despite 
being the major water user in the country, water prices in 
the  agricultural  sector  are  significantly 
lower  than 
domestic  and  industrial  prices,  providing  little  incentive 
for an efficient water use.  

Investments  in  the  water  sector  from  the  ERDF  and 
EAFRD 2014-20 are made subject to Action Plans for the 

116European Commission, Facts and Figures about Urban Waste Water 

Treatment  

117 European Commission, 2016. Urban waste water, 8th 

implementation report  

115 Sblocca-Italia Law 164/2014 

118 Partnership Agreement 2014-20, section 1A, pp.66-7 

Environmental Implementation Report – Italy 

 
 
 
                                                            
 
 
                                                            
ex-ante  conditionality  for  water,  to  ensure  the  correct 
application  of  the  Water  Framework  Directive,  including 
the  adoption  of  updated  RBMPs  and  the  recovery  of 
costs for water services.   

In  Italy  integrated  water  services  (public  water  supply, 
wastewater  treatment  and  sewerage)  are  regulated  by 
independent  authority  called  AEEGSI119  which 
an 
approves  the  tariff  methodology  and  the  tariff  plans  of 
water utilities. 

cost 

resource 

regulations  governing 

Italy  has  issued  guidelines  in  the  form  of  Ministerial 
Decrees for the definition of environmental costs needed 
recovery120  &  on  water 
abstraction 
for 
in  the  agricultural 
measurements  and  distribution 
sector121  and  various 
the 
implementation of cost recovery including environmental 
and 
For  example,  by  decision 
662/2014/IDR122,  AEEGSI  has  identified  a  first  set  of 
charges to include in the environmental resources' costs 
(ERC)  and  by  decision  656/2015/R/IDR123  has  regulated 
the relationship between service granting authorities and 
water 
decision 
643/2013/R/IDR124,  AEEGSI  has  introduced  the  Water 
Tariff  Method125  and  with  decision  664/2015/R/IDR126  it 
has  approved  a  new  tariff  method  for  integrated  water 

addition 

utilities. 

cost. 

with 

In 

119 Autorità per l'energia elettrica, il gas ed il sistema idrico 
120 Decreto MATTM n. 39 del 24/2/15 di approvazione criteri per la 

definizione degli ERC per tutti gli usi 

121 Decreto MiPAFF del 31/7/2015 Approvazione delle linee guida per 

la regolamentazione da parte delle Regioni delle modalita' di 
quantificazione dei volumi idrici ad uso irriguo 

122 Delibera 662/R/2014/IDR dell'AEEGSI “Individuazione ed 

esplicitazione dei costi ambientali e della risorsa con riferimento a 
quanto previsto nel metodo tariffario idrico (MTI) per l’anno 2015 

123 Delibera 656/2015/R/IDR dell'AEEGSI “Convenzione tipo per la 

regolazione dei rapporti tra enti affidanti e gestori del servizio idrico 
integrato -Disposizioni sui contenuti minimi essenziali” 

124 Delibera 27/12/13 n. 643/2013/R/IDR dell'AEEGSI Approvazione del 

metodo tariffario idrico e delle disposizioni di completamento 

125 Metodo Tariffario Idrico - MTI 
126 Delibera 664/2015/R/IDR dell'AEEGSI “Approvazione, ai fini della 
valorizzazione dei conguagli nell’ambito del metodo tariffario per il 
secondo periodo regolatorio mti-2, delle predisposizioni tariffarie 
relative all’ambito territoriale ottimale sarnese vesuviano, per il 
periodo 2012-2015” 

Italy  20 

services  relating  to  the  2016  –  20  period.  AAEGSI  has 
introduced  an 
increasing  (progressive)  tariff  system 
related  to  consumption  that  ensures  incentive  pricing, 
supports  investments  and  provides  adequate  incentives 
for users to use water resources efficiently. New rules on 
water 
force  on  01.01.2016. 
into 
Furthermore,  the  2016  Budget  Law127  has  created  a 
guarantee fund to improve water infrastructure, financed 
by the new tariff. 

tariffs  entered 

The Ministry of Environment, in cooperation with District 
Authorities,  has  established  a  Working  Group  to  draft 
national  guidelines  on  the  abstraction  procedures  and 
setting up environmental flows. 

identified  and 
Flood  risk  areas  have  already  been 
Italy128.  The  first  cycle  of  Flood  Risk 
mapped 
Management Plans  (FRMPs)  have been completed  apart 
from Sicily129. 

in 

Italy  is  hit  regularly  by  flooding  incidents  with  serious 
economic  damage  costs  (the  latest  serious  flooding 
incidents occurred in October and November 2014 with a 
total  cost  of  damage  estimated  at  EUR  2.2  billion).  It  is 
estimated  that  60%  of  the  country  is  at  risk  of  flooding. 
The total cost of floods extrapolated in Italy over 11 years 
between  2002-13  was  around  EUR  11  billion  for  the  20 
major  floods  recorded.  The  average  cost  per  flood  was 
EUR  558  million,  well  above  the  EU  average  of  EUR  370 
million130. Over a longer time period, it is estimated that 
the  costs  of  damages  on  physical  assets  in  the  period 
1950-10  amounted  to  EUR  52  billion131.  In  contrast,  the 
costs  of  securing  the  entire  national  territory  was 
estimated at EUR 44 billion132. 

In  order  to  provide  an  effective  governance  system  to 
manage  hydro-geological  risk,  Italy  launched  a  National 
Operational  Plan  for  the  mitigation  of  hydrogeological 
risk  in  the  period  2015-20,  based  on  the  proposals 
directly submitted by the regions to a constantly updated 
web  platform  called  ReNDiS133;  so  far  about  9,000 
requests  of  mitigation  measures  for  over  EUR  31  billion 
have  been  received.  Submitted  proposals  are  evaluated 
in  accordance  with  criteria  laid  down  in  a  Council  of 

127 Legge di stabilità 2016 
128 European Commission, Report on the progress in implementation 

of the Floods Directive p. 55 

129Italian government 
130 RPA 2014, Economic and Social Benefits of Environmental 
Protection and Resource Efficiency Related to the European 
Semester, study for European Commission 

131 Consiglio Nazionale dei Geologi (CNG), 2010. Terra e sviluppo, 
decalogo della terra 2010 – Rapporto sullo stato del territorio 
italiano. Roma, 13.10.2010 

132 Analysis of the potential for growth and job creation through the 

protection of water resources, pack 2,  final report, (2015), ACTeon & 
IMDEA et al (unpublished consultants' report carried out for the 
Commission) 

133 Repertorio Nazionale degli interventi per la Difesa del Suolo 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
Ministers Presidential Decree134. Furthermore, to ensure 
the  funding  of  the  most  urgent  measures,  another 
Council  of  Ministers  Presidential  Decree135  identifies  as 
part  of 
the  National  Operational  Programme,  a 
Metropolitan  Areas  Plan136  consisting  of  a  set  of 
mitigation  measures  for  metropolitan  areas  and  urban 
areas with high levels of population exposed to flood risk. 
This Plan includes 33 projects already funded for a value 
of  over  EUR  650  million,  and  a  programmatic  part  with 
another  99  projects  for  a  value  of  around  EUR  500 
million. 

Management and  prevention  of  floods is  an  area where 
potentially  more  economical  nature-based  solutions 
could improve resource efficiency through reducing costs 
and delivering multiple benefits.  In its 2014-20 ERDF and 
EAFRD regional programmes Italy is planning to invest in 
nature-based  solutions  to  deal  with  flood  control  in 
addition to grey infrastructure. Under EFSI a new loan is 
underway  to  deal  with  flooding  and  hydrogeological 
risks137. Finally, among the measures included in National 
Operational  Plan  green  Infrastructures  are  considered  a 
priority  over  other  measures,  as  they  contribute  to 
integrated goals from both RBMPs and FRMPs. 

Suggested action  

to 

  Improve water policy in line with the intervention logic 
of the Water Framework Directive, i.e. provide a more 
detailed  assessment  of  pressures 
improve 
monitoring  to  know  the  status  of  water  bodies  and 
design  Programmes  of  Measures  that  address  all  the 
main  pressures 
from 
agriculture, 
industry  and  urban  wastewater.  The 
Programmes  of  Measures  should  be  adequately 
funded.    The  national  and  regional  administration  in 
the water sector should improve coordination including 
using  the  district  basin  authorities  created  by  the 
Collegato Ambientale138. 

in  particular 

identified, 

  Roll  out  a  water  pricing  policy  based  on  adopted 
national  guidelines, 
including  metering  for  more 
efficient  use  of  water.  Water  abstraction  permits 
should  be  reviewed  so  they  are  consistent  with 
environmental objectives. 

  Ensure  that  new projects  that  can  cause  deterioration 
of  the  status  are  properly  assessed  according  to  the 

134 Individuazione dei criteri e delle modalità per stabilire le priorità di 
attribuzione delle risorse agli interventi di mitigazione del rischio 
idrogeologico , DCPM 28.05.15 

135 Individuazione degli interventi compresi nel Piano stralcio aree 

metropolitane ed aree urbane con alto livello di popolazione esposta 
a rischio di alluvione, DCPM 15.09.15 

136 Piano Stralcio Aree Metropolitane 
137 EFSI – Italian Flood Prevention Loan 
138 The Collegato Ambientale (art. 51) updates the governance 

structure for planning in the field of water and soil conservation 
(approval in July 2016 – Conferenza Stato Regioni), making 
operational the district Basin Authority. 

Italy  21 

Water  Framework  Directive  Article  4(7),  in  particular 
new hydropower projects.  

  Increase  investment  in  water  infrastructure  to  ensure 
for  the  collection  and  adequate 

implementation 
treatment of wastewater. 

  Reduce  the  polluting  pressures  by  agriculture  on 
surface  and  ground  waters  such  as  by  introducing 
binding  requirements  for  farmers  to  improve  nutrient 
in  new 
balances.  The 
national guidelines is a first step.  
  Improve land use and flood control. 

implementation  of  actions 

Enhancing the sustainability of cities 

The  EU  Policy  on  the  urban  environment  encourages 
cities  to 
implement  policies  for  sustainable  urban 
planning and design, including innovative approaches for 
sustainable 
urban  public 
buildings,  energy  efficiency  and  urban  biodiversity 
conservation.  

transport  and  mobility, 

SDG11  aims  at  making  cities  and  human  settlements 
inclusive, safe, resilient and sustainable. 

Europe is a Union of cities and towns; around 75% of the 
EU  population  are  living  in  urban  areas.139  The  urban 
the 
environment  poses  particular  challenges 
environment  and  human  health,  whilst  also  providing 
opportunities and efficiency gains in the use of resources.  

for 

The  Member  States,  European  institutions,  cities  and 
stakeholders have prepared a new Urban Agenda for the 
EU  (incorporating  the  Smart  Cities  initiative)  to  tackle 
these  issues  in  a  comprehensive  way,  including  their 
connections with social and economic challenges. At the 
heart  of  this  Urban  Agenda  will  be  the  development  of 
twelve  partnerships  on  the  identified  urban  challenges, 
including air quality and housing140.  

The  European  Commission  will 
benchmark system in 2017141. 

launch  a  new  EU 

The  EU  stimulates  green  cities  through  awards  and 
funding,  such  as  the  EU  Green  Capital  Award  aimed  at 
cities  with  more  than  100,000  inhabitants  and  the  EU 
Green  Leaf  initiative  aimed  at  cities  and  towns,  with 
between 20,000 and 100,000 inhabitants.  

In  addition,  Italy  has  allocated  5%  of  its  ERDF  budget 
2014-20 to sustainable urban development. 

is  a  great 

There 
Italy's 
metropolitan  and  medium  sized  cities.  Medium  sized 
cities  have  the  highest  number  of  cars  (63.8  per  100 

level  of  motorisation 

in 

139 European Environment Agency, Urban environment 
140  http://urbanagendaforthe.eu/ 
141 The Commission is developing an Urban Benchmarking and 

Monitoring ('UBaM') tool to be launched in 2017. Best practices 
emerge and these will be better disseminated via the app featuring 
the UBaM tool, and increasingly via e.g. EUROCITIES, ICLEI, CEMR, 
Committee of the Regions, Covenant of Mayors and others. 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
persons) followed by the 14 metropolitan cities (62.7 per 
100  persons)  in  2011  compared  to  the  national  average 
(62.5 per 100 persons). In the period 2001-11, there has 
been  a  noticeable  reduction  in  motorisation  in  centre-
in  the  southern 
north  metropolitan  cities  whereas 
metropolitan  cities there  has  been  an  increase.  This  can 
be  explained  by  public  policies  encouraging  public 
transport.  The  majority  of  regions  will  be  using  2014-20 
ERDF  funds  to  support  clean  urban  infrastructure  and 
promotion;  there  is  also  a  dedicated  ERDF  National 
Programme for Metropolitan Cities 2014-20. 

Italy  is  the  10th  worst  in  the  EU  with  regard  to  the 
economic  costs  caused  by  traffic  congestion.142  Certain 
urbanised  areas  such  as  Rome,  Milan  and  the  Venice-
Mestre  area  are  particularly  affected.  Solving  the 
congestion  problem  would  substantially  reduce  the 
(health  costs  of)  air  pollution  and  the  direct  economic 
costs  of  congestion.  There 
for  a  more 
comprehensive approach to congestion problems in Italy. 

is  scope 

Regarding  public  transport,  compared  to  the  national 
average index of 208.9 passengers using public transport 
per  city,  metropolitan  cities  have  a  figure  of  242.9143, 
with a higher value in the centre-north & Cagliari (391.7 
& 234, respectively) compared to the metropolitan cities 
in the south (70.8) in 2012144. Mobility sharing is strongly 
encouraged  with  the  establishment  of  a  national 
observatory145,  and  in  Milan  for  example  it  is  estimated 
that  10-20%  of  the  vehicles  are  shared146.  The  ERDF  is 
supporting  the  construction  of  the  tramway  in  Florence 
reducing  congestion  and  improving  quality  of  life147. 

142 INRIX scorecard  
143 Number of passengers taking public transport divided by the 

resident population of a given city 

144 Partnership Agreement 2014-20, section 1A, pp.139 
145 Observatory on Mobility Sharing  
146 Foundation on Sustainable Development, mobility sharing, p.17 
147 European Commission, regional projects, Florence tram  

Italy  22 

Reggio  Emilia  had  over  1m  of  cycle  path/inhabitant,  the 
highest  among 
the  2016  Green  Capital  Award 
contenders148.  EFSI  is  being  used  in  Bologna  to  improve 
urban mobility149. Connecting Italy (Connettere Italia), the 
new  strategy  for  transport  infrastructure  and  logistics 
includes  a  target  of  a  20%  increase  in  km  of  trams  and 
metro  lines  per  inhabitant  by  2030,  a  40%  target  for 
public  transport,  and  a  10%  target  for  softer  transport 
modes (e.g. cycling). Furthermore, it is planned to have a 
30%  increase  in  the  population  served  by  high-speed 
trains by 2030, a 50% increase in railway freight transport 
by 2021  and  a  maximum  time  of  2  hours  to  reach  ports 
and airports in the core network150. Italy has also created 
in  2007  a  national  observatory  on 
local  public 
transport151. 

Each  inhabitant  has  an  average  of  30.3  m3  of  urban 
green space in 2011. The lowest values are found in the 
centre  (23  m2  per  inhabitant)  and  the  north-west  (24.3 
m2  per  inhabitant),  and  in  the  north-east  the  average 
figure  is  almost  doubled  (45.4  m2  per  inhabitant).  It  is 
also relatively high in the south (37.1 m2)152. The majority 
of Italian cities have less than 20% green urban areas.153  
In 2012, over 86% of the residents of Reggio-Emilia lived 
within 300m of recreational green areas, helped through 
planning  policies  such  as  a  green  belt154.  Paternò,  a 
medium-sized  city  in  Sicily,  has  used  the  ERDF  to  boost 
green infrastructure155. Another innovative project is the 
Vertical  Forest156,  in  the  Porta  Nuova  district  of  Milan, 
containing  plants  roughly  equivalent  to  2.5  acres  of 
forest.157 

A  consequence  of  energy  use  and  traffic  is  on  airborne 
particulate  matter.  The  metropolitan  cities  have  the 
highest  number  of  days  when  daily  limit  values  are 
passed  (56.1  on  average)  compared  to  medium  sized 
cities (43.1 on average)158.  

Regarding  municipal  waste,  medium-sized  cities  such  as 
Treviso  increased  recycling  from  52% in  December  2013 
to  86%  in  November  2015159.    In  Reggio-Emilia  the 
recycling  rate  is  almost  60%160.  In  Milano  separate 

148 European Green Capital Good practice report 2016, p.15 
149 EFSI – Ambiente Urbano Bologna V 
150 Connettere l’Italia - Strategie per le infrastrutture 
di trasporto e logistica, pp.44-46 
151 Osservatorio Nazionale sulle politiche del Trasporto Pubblico Locale 
152 ISTAT Green Space 
153 European Environment Agency, Green Urban Areas  
154 European Green Capital Good practice report 2016, p.19 
155 GRaBS, (Green and Blue Space Adaptation for Urban Areas and Eco 

Towns),Interreg IV C 

156 Bosco Verticale 
157 ten Brink P., Mutafoglu K., Schweitzer J-P., Kettunen M., Twigger-
Ross C., Baker J., Kuipers Y., Emonts M., Tyrväinen L., Hujala T., and 
Ojala A. (2016) The Health and Social Benefits of Nature and 
Biodiversity Protection. A report for the European Commission, 
Institute for European Environmental Policy, London/Brussels, p.12 

158 Partnership Agreement 2014-20, section 1A, pp.141 
159 European Commission, Brussels workshop 13.01.2016 
160 European Green Capital Good practice report 2016, p.35 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
collection  is  54%161.  The  situation  is  worse  in  southern 
Italian  cities  which  encounter  serious  difficulties 
in 
managing waste (with some exceptions such as the cities 
of  Salerno  and Benevento  which have a  higher separate 
collection).  The  ERDF  has  supported  improvements  in 
waste treatment in Salerno162. 

Regarding  leakage  of  drinking  water,  the  centre  and 
southern  cities  have  a  higher  level  than  the  national 
average.    The  highest  losses  are  in  Catania  (56.9%)  and 
Cagliari (58.5%) in 2012163. EFSI is being used to improve 
water supply in Milan164 and Ancona165. 

Metropolitan  cities  such  as  Venice,  Florence,  Rome, 
Naples,  Bari,  Reggio  Calabria,  Messina,  Catania  and 
Palermo  have  persistent  difficulties  to  treat  waste 
waters.  Reggio  Emilia  has  an  almost  90%  urban 
wastewater  connection  rate166.  The  ERDF  has  heavily 
supported urban wastewater treatment in the Campania 
Region  for  example  the  project  for  Campi  Flegrei167, 
whereas European Investment Bank (EIB) loans are being 
used  especially  in  centre  and  northern  Italy  to  ensure 
compliance.,168169 

International agreements  

The  EU  Treaties  require  that  the  Union  policy  on  the 
environment  promotes  measures  at  the  international 
level  to  deal  with  regional  or  worldwide  environmental 
problems. 

Most  environmental  problems  have  a  transboundary 
nature  and  often  a  global  scope  and  they  can  only  be 
addressed effectively through international co-operation. 
International  environmental  agreements  concluded  by 
the Union are binding upon the institutions of the Union 
and  on  its Member  States.  This  requires  the  EU  and the 
Member  States  to  sign,  ratify  and  effectively  implement 
all  relevant  multilateral  environmental  agreements 
(MEAs) in a timely manner. This will also be an important 
contribution  towards  the  achievement  of  the  SDGs, 
which Member States committed to in 2015 and include 
many  commitments  contained  already  in  legally  binding 
agreements. 

The  fact  that  some  Member  States  did  not  sign  and/or 
ratify  a  number  of  MEAs  compromises  environmental 
implementation,  including  within  the  Union,  as  well  as 
in  related  negotiations  and 
the  Union’s  credibility 
the 
international  meetings  where 

supporting 

161 Consorzio Italiano Compostatori, presentation, Waste Directors, 

Brussels, 26.10.2016 

162 European Commission, regional projects, Salerno waste 
163 ISTAT UrBes 2015, p.30  
164 EFSI, MM water infrastructure upgrade 
165 EFSI, multiservizi settore idrico Ancona 
166 European Green Capital Good practice report 2016, p.41 
167 European Commission, regional projects, Lake Flegrei  
168 EIB Viver Hydrobond 
169 EIB Breaking Down Investment Barriers at Ground Level, p.31 

Italy  23 

participation of third countries to such agreements is an 
established  EU  policy  objective.  In  agreements  where 
voting takes place it has a direct impact on the number of 
votes to be cast by the EU. 

Currently,  Italy  has  signed  but  not  yet  ratified  the 
Offshore  Protocol  of  the  Barcelona  Convention170,  the 
Protocol  on  Integrated  Coastal  Zone  Management,  two 
agreements  under 
the  Convention  on  Long-range 
Transboundary Air Pollution: the Gothenburg Protocol to 
Abate  Acidification,  Eutrophication  and  Ground-level 
Ozone and the Heavy Metals Protocol. The same applies 
to  the  Stockholm  Convention  on  Persistent  Organic 
Pollutants,  the  Kiev  Protocol  on  Pollutant  Release  and 
Transfer  Registers,  and  the  Nagoya  Protocol171.    The 
Italian  authorities  have  indicated  their  commitment  to 
ratify  the  Minamata  Convention  on  mercury,  already 
signed in 2013. 

Suggested action 

  Increase  efforts  to  be  party  to  relevant  multilateral 
environmental agreements, by signing and ratifying the 
remaining agreements. 

170 Protocol for the Protection of the Mediterranean Sea against 
Pollution Resulting from Exploration and Exploitation of the 
Continental Shelf and the Seabed and its Subsoil.    

171 Protocol on Access to Genetic Resources and the Fair and Equitable 
Sharing of Benefits Arising from their Utilization to the Convention on 
Biological Diversity. 

Environmental Implementation Report – Italy 

 
 
                                                            
 
 
                                                            
Part II: Enabling Framework: Implementation Tools 

4. Market based instruments and investments

Italy  24 

Green taxation and environmentally harmful 
subsidies 

The Circular Economy Action Plan encourages the use of 
financial  incentives  and  economic  instruments,  such  as 
taxation  to  ensure  that  product  prices  better  reflect 
environmental costs. The phasing out of environmentally 
harmful  subsidies  is  monitored  in  the  context  of  the 
European  Semester  and  in  national  reform  programmes 
submitted by Member States. 

Taxing pollution and resource use can generate increased 
revenue  and  brings  important  social  and  environmental 
benefits.   

Italy has environmental tax revenues amounting to 3.6% 
of GDP in 2014 (EU 28 average: 2.46% of GDP).172 In the 
same  year  environmental  tax  revenues  accounted  for 
8.28%  of  total  revenues  from  taxes  and  social-security 
contributions  (EU28  average:  6.35%)  as  shown  in  Figure 
13. 

next  largest  contribution  to  revenue  comes  from  the 
proposed  water  abstraction  tax.  This  accounts  for  EUR 
4.64  billion  in  2030  (real  2015  terms),  equivalent  to 
0.23% of GDP.  

Italy  has  a  diesel  differential  of  around  85%  (as  a 
benchmark  a  figure  of  100%  means  the  same  level  of 
taxation  for  petrol  and  diesel  cars, 
i.e.  no  diesel 
differential)175,  whereas  externalities  associated  with 
diesel  are  higher  than  petrol  and  therefore  it  would 
justify higher taxation.  

Figure  13:  Environmental  tax  revenues  as  a  share  of 
total  revenues  from  taxes  and  social  contributions  
(excluding imputed social contributions) in 2014176 

recommended  as  a 

Shifting  taxation  away  from  labour  towards  taxes  less 
harmful  to  growth  remains  a  key  challenge  in  Italy,  and 
has  been 
specific 
recommendation  (CSR)  under  the  European  Semester 
2012-14.  Italy remains fairly modest in its proposed tax 
shift  with  0.2%  of  GDP.  A  3  year  plan  of  measured  tax 
cuts is planned starting with property taxes in 2016.  

country 

A  2016  study  shows  there  is  considerable  potential  for 
shifting  taxes  from  labour  to  environment173.  Under  a 
good practice scenario174, these taxes could generate an 
additional EUR 10.85 billion by 2018, rising to EUR 19.53 
is 
billion  by  2030  (both 
equivalent  to  an  increase  by  0.64%  and  1.4%  of  GDP  in 
2018 and 2030, respectively.  

in  real  2015  terms).  This 

The  largest  potential  source of  revenue  comes  from  the 
suggested  harmonisation  of  taxes  on  transport  fuels, 
generating  EUR  9.14  billion  of  revenue  generated  by 
2030 (real 2015 terms), equivalent to 0.45% of GDP. The 

172 Eurostat, Environmental tax revenues, accessed June 2016 
173  Eunomia  Research  and  Consulting,  IEEP,  Aarhus  University,  ENT, 
2016.  Study on Assessing the Environmental Fiscal Reform Potential 
for the EU28. N.B. National governments are responsible for setting 
tax  rates  within  the  EU  Single  Market  rules  and  this  report  is  not 
suggesting  concrete  changes  as  to  the  level  of  environmental 
taxation.  It  merely  presents  the  findings  of  the  2016  study  by 
Eunomia et al on the potential benefits various environmental taxes 
could bring. It is then for the national authorities to assess this study 
and their concrete impacts in the national context. A first step in this 
respect,  already  done  by  a  number  of  Member  States,  is  to  set  up 
expert groups to assess these and make specific proposals. 
174 The good practice scenario means benchmarking to a successful 

taxation practice in another Member State. 

Environmentally-harmful  subsidies  (EHS)  persist  in  Italy 
notably  a  reduced  rate  of  VAT  on  energy  and  low 
taxation  of  company  cars.  There  has  been  very  limited 

175 Update by European Commission, 2015 based on Harding M., 2014. 
The Diesel Differential: Differences in the Tax Treatment of Gasoline 
and Diesel for Road Use. OECD Taxation Working Papers, No. 21; 
European Environment Agency 2016, Environmental taxation and EU 
environmental policies, table 4.3, p.24 

176 Eurostat, Environmental tax revenues, accessed October 2016 

Environmental Implementation Report – Italy 

 
 
 
                                                            
 
                                                            
progress on the removal of EHSs with some increases in 
excise  duties  and  an  extension  for  grants  for  energy 
efficiency  (so  an  environmentally  positive  subsidy) 
offered  in  the  2015  budget  but  so  far  not  enacted.  The 
Collegato  Ambientale  establishes  a  catalogue  of 
environmental  friendly  and  harmful  subsidies  with  a 
report due by 31 July of each year. 

in  more  than  50%  of  tenders  for  certain  product 
categories180.  The  Collegato  Ambientale  establishes  MEC 
that  apply  to  at  least  50%  of  the  value  of  a  given 
procurement  activity  with  the  possibility  of  increasing 
this  percentage  in  a  period  of  5  years.  Furthermore,  a 
national  public  procurement  strategy  was  adopted  in 
early 2016. 

Italy  25 

Italy  has  proposed  to  establish  a  Committee  on 
Environmental  Taxation,  mentioned  in  its  2015  National 
Reform  Programme  (but  not  mentioned  in  the  2016 
National Reform programme). The  Collegato Ambientale 
creates  a  Committee  on  Environmental  Accounting  that 
should produce a report by the 28 February of each year.  

Green Public Procurement  

The  EU  green  public  procurement  policies  encourage 
Member States to take further steps to reach the target 
of applying green procurement criteria to at least 50% of 
public tenders. 

Green  Public  Procurement  (GPP)  is  a  process  whereby 
public  authorities  seek  to  procure  goods,  services  and 
works  with  a  reduced  environmental  impact  throughout 
their  life-cycle  when  compared  to  goods,  services  and 
works  with  the  same  primary  function  that  would 
otherwise be procured.  

this  money 

The  purchasing  power  of  public  procurement  in  the  EU 
equals to approximately 14% of GDP177. A substantial part 
is  spent  on  sectors  with  high 
of 
environmental impact such as construction or transport, 
so  GPP  can  help  to  significantly  lower  the  impact  of 
public  spending  and 
innovative 
businesses.  The  Commission  has  proposed  EU  GPP 
criteria178. 

foster  sustainable 

In 2013 Italy has adopted the national action plan (NAP) 
for  GPP.  The  NAP  GPP  provides  that  the  Ministry  of  the 
Environment set out the minimum environmental criteria 
(MEC),  which  represent  the  reference  point  at  national 
level  for  the  use  of  GPP  by  contracting  authorities.  The 
Collegato Ambientale (Article 19) makes GPP mandatory. 

One  good  practice  is  the  Remade  in  Italy179  accredited 
certification scheme specifically aimed at the verification 
of recycled content in a product.  

Regarding the level of uptake of GPP in public authorities 
in Italy, there is a positive trend in the last years, also due 
to  the 
its  central  purchasing  body 
(CONSIP),  which  has  seen  the  use  of  sustainable  criteria 

involvement  of 

177 European Commission, 2015. Public procurement 
178 In the Communication “Public procurement for a better 

environment” (COM /2008/400) the Commission recommended the 
creation of a process for setting common GPP criteria. The basic 
concept of GPP relies on having clear, verifiable, justifiable and 
ambitious environmental criteria for products and services, based on 
a life-cycle approach and scientific evidence base. 

179 Remade in Italy  

Investments: the contribution of EU funds  

European  Structural  and  Investment  Funds  Regulations 
provide  that  Member  States  promote  environment  and 
funding  strategies  and 
climate  objectives 
territorial 
programmes 
cohesion,  rural  development  and  maritime  policy,  and 
reinforce the capacity of implementing bodies to deliver 
cost-effective and sustainable investments in these areas. 

in  their 
for  economic, 

social  and 

Making  good  use  of  the  European  Structural  and 
Investment  Funds  (ESIF)181  is  essential  to  achieve  the 
environmental goals and integrate these into other policy 
areas.  Other  instruments  such  as  the  Horizon  2020,  the 
LIFE  programme  and  the  EFSI182  may  also  support 
implementation and spread of best practice. 

Italy  receives  EUR  32.8  billion  in  total  Cohesion  Policy 
funding  over  2014-20  period  (current  prices,  including 
ERDF, ESF, European Territorial Cooperation funding and 
the  allocation  for  the  Youth  Employment  Initiative,  see 
Figure  14);  national  co-financing  adds  another  EUR  20.2 
billion. Furthermore there is yet another EUR 54.8 billion 
from  the  National  Cohesion  and  Development  Fund183.  
Italy also receives EUR 10.4 billion for rural development 
and EUR 537 million for fisheries and maritime affairs184. 
Cohesion  policy  (and  rural  development)  is  a  mixed 
competence  with  both  national  programmes  and 
regional  programmes.  The 
south 
(Basilicata,  Calabria,  Campania,  Puglia  and  Sicily)  and 
transition regions (Abruzzo, Molise and Sardinia) receive 
a  higher  intensity  of  funding  than  the  more  developed 
centre  and  north  in  both  the  ERDF  and  the  National 
Cohesion and Development Fund (80% in the south, 20% 
in the centre & north). 

less  developed 

In  addition,  30%  of  the  first  pillar  of  the  Common 
Agricultural  Policy  (CAP)  (EUR  27  billion  for  Pillar  1  for 
Italy185)  will 
to  basic  environmental 

contribute 

180 Presentation made by CONSIP, Rome Conference 25.11.14 on 

'L’uso strategico degli appalti pubblici per un'economia sostenibile' 
181 ESIF comprises five funds – the European Regional Development 
Funds (ERDF), the Cohesion Fund (CF), the European Social Fund 
(ESF), the European Agricultural Fund for Rural Development 
(EAFRD), and the European Maritime and Fisheries Fund (EMFF). The 
ERDF, the CF and the ESF together form the Cohesion Policy funds. 

182 European Investment Bank, 2016 European Fund for Strategic 

Investments 

183 Fondo per lo Sviluppo e la Coesione 
184 European Commission; Dipartimento per le Politiche de Coesione 
185 European Commission, Common Agriculture Policy; Pillar 1 is the 

non-rural development (non-EAFRD) part of the CAP 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
protection.   

 Figure  14:  European  Structural  and  Investment  Funds 
2014-2020: Budget Italy by theme, EUR billion186 

With  regard  to  the  support  by  EARFD,  the  agri-climate 
environment  component 
includes  a  wide  range  of 
measures,  some  of  which  are  ambitious  and  address  a 
wide  range  of  environmental  issues  (biodiversity,  water, 
soil, air).   

The ERDF allocation for environment (Thematic Objective 
6  –  T06)  is  EUR  2.6  billion  which  is  12.5%  of  the  total 
allocation  for  the  ERDF187.  Investments  in  water  and 
waste  are  only  eligible  in  the  less  developed  south  and 
Sardinia.  As  the  ERDF  allocation  is  insufficient  to  close 
implementation  gaps,  adequate  financing  from  the 
National  Cohesion  and  Development  Fund  and  EIB  and 
EFSI loans is needed.  

The action plans for the ex-ante conditionalities for water 
and waste investments under the ERDF and EAFRD 2014-
20 mentioned earlier will play a major role in accelerating 
the implementation of the environmental legislation, and 
foster a dialogue with the authorities.  

Some  of  the  expected  results  from  ERDF  investments  in 
the South of Italy are as follows: 877,800 Tonnes/year of 
additional  waste  recycling  capacity  will  be  created; 

Italy  26 

1,373,786 additional persons will be  served by improved 
water  supply  ;  4,014,540  persons  will  be  served  by 
improved  wastewater  treatment;  in  terms  of  expected 
results  in  the  whole  territory,  1,693,859  persons  will 
benefit  from  forest  fire  protection  measures  ;  77,088 
Hectares of land will be rehabilitated ; 273,915 Hectares 
of  habitats  will  be  supported  to  attain  a  better 
conservation status188.   

Current  data  suggest  that  the  overall  disbursement  of 
funds for the 2007-13 programming period for the ERDF 
in Italy reached 80% of the allocated resources with 95% 
in the centre-north and 78% in the south (all figures well 
above  the  EU  average),  but  the  environmental  sector  is 
performing  worse  than  other  sectors.189  In  2014-20,  the 
EU  funds  will  be  instrumental  inter  alia  to  end  the 
persistent infringements in the water and waste sectors. 
Indeed,  the  ERDF  is  being  used  to  deal  with  under-
investment in water e.g. in Campania in a substantial way 
with five Major Projects. 

With  regard  to  natural  capital  (biodiversity),  clean-up  of 
contaminated  land,  and  risk  prevention,  the  ERDF  is 
available  over  the  whole  territory. 
In  central  and 
northern  Italy  investments  are  focused  on  sustainable 
transport  and  energy,  research  and  competitiveness  of 
SMEs. This includes opportunities for eco-innovation and 
promoting the circular economy.    

- 

fragmentation, 

The  Cohesion  Policy  in  Italy  has  suffered  three  main 
adequate 
problems 
administrative  capacity  and  a  weak  central  control.  The 
new  National  Cohesion  Agency  was  created  to  resolve 
these issues.  

lack 

of 

The  new  National  Strategy  for  Internal  Areas  supported 
by 
to  make 
environmental investments190. 

is  another  opportunity 

the  ESIF 

lead 

funds 

in  using  EU 

to  difficulties 

A  lack  of  administrative  capacity  in  small  municipalities 
can 
for 
environmental  purposes.  The  cohesion  policy  places  an 
emphasis  on  financing  so-called  major  projects;  in  the 
case of Italy, there are several major projects in the field 
of urban wastewater treatment in the Campania region. 
On  the  other  hand,  it  is  often  smaller  projects  at 
municipal 
implement  EU 
environmental  objectives  and  targets  (e.g.  separate 
collection, public awareness on waste prevention, nature 
and biodiversity projects). 

level  that  are  needed  to 

The  Ministry  of  Environment  has  developed  several 
initiatives  &  projects  to  strengthen  its  support  of  the 
regions.  This  support  aims  at  the  better  use  of  ESIF 

186 European Commission, European Structural and Investment Funds 

Italy 

Data By Country 

189 Final data for the period 2007-13 will only be available at the end of 

187 This figure includes risks and land decontamination too. The narrow 
environmental allocation (water, waste, nature, air) is EUR 1.4 billion 

2017.   

190 Programma Nazionale di Riforma 2016, April 2016, p.132 

188 European Commission, European Structural and Investment Funds - 

Environmental Implementation Report – Italy 

 
 
 
                                                            
                                                            
in  the  environmental  sector  during  the 
resources 
programming  period  2014-20  and  the  improvement  of 
the complementarity between ESIF and other funds and 
programmes. 

Italy  27 

EU 

co-financed  projects 

One  existing  project  is  the  Knowledge  Platform  -  Best 
Practices  for  the  Environment  and  Climate  Action191, 
financed  with  Technical  Assistance192  collecting  results 
from 
various 
programmes and developing networking capabilities. The 
transfer  of  acquired  knowledge  and  results  from  LIFE 
projects  have  already  begun  to  assist  the  Calabria  and 
Sicily  Regions  (ARUPA;  PRIME;  GESTIRE  2020;  TRUST; 
AQUOR)193.  The  Platform  supports  the  Regions  and  the 
SME 
innovative  methodologies  and 
technologies. 

in  accessing 

through 

implemented 

The  Ministry  of  Environment  is  also  a  partner  of  several 
the  Rural  National 
through 
projects 
Network  Programme  (co-financed  by  EAFRD),  including 
the  one  focused  on  complementarity  between  the  LIFE 
Programme 2014-20 and Rural Development policies194. 

With  the  technical  support  of  the  LIFE  National  Contact 
Point  at  the  Ministry  of  Environment195,  306  projects 
were  co-financed  2007-13  and  29  projects  in  2014.  
Moreover,  Italy  is  involved  in  104  of  the  189  projects 
resulting  from  the  2014,  2015  and  2016  one  stage  calls 
for  proposals  in  the  Societal  Challenge  “Climate  action, 
environment,  resource  efficiency  and  raw  materials” 
(including  the  SC5  relevant  projects  resulting  from  the 
calls for SMEs Instruments - phase 2) 196 

With  regard  to  the  use  of  EFSI,  in  November  2014  Italy 
presented around 80 projects worth over EUR 40 billion, 
with the process still being open to new eligible projects. 
EFSI  environmental  projects in  the  fields of  dealing  with 
hydrogeological  hazards,  urban  wastewater  treatment 
and decontaminated land are cited earlier in this Country 
Report. 

191 La Piattaforma delle Conoscenze , Ministry of the Environment  
192 PONGAT 2007-13  
193 LIFE projects: ARUPA; PRIME; GESTIRE 2020; TRUST; AQUOR 
194 Complementarietà e sviluppo di sinergie con il programma per 

l’ambiente e l’azione per il clima LIFE a supporto dei PSR 2014/2020 

195 LIFE projects national page, Ministry of Environment  
196 European Commission, Horizon 2020  

Environmental Implementation Report – Italy 

 
 
 
 
                                                            
5. Effective governance and knowledge 

Italy  28 

SDG  16  aims  at  providing  access  to  justice  and  building 
effective,  accountable  and  inclusive  institutions  at  all 
levels. SDG 17 aims at better implementation, improving 
policy  coordination  and  policy  coherence,  stimulating 
science, 
innovation,  establishing 
partnerships and developing measurements of progress. 

technology 

and 

Effective governance of EU environmental legislation and 
policies  requires  having  an  appropriate 
institutional 
framework,  policy  coherence  and  coordination,  applying 
legal  and  non-legal  instruments,  engaging  with  non-
governmental  stakeholders,  and  having  adequate  levels 
of  knowledge  and  skills197.  Successful  implementation 
depends, to a large extent, on central, regional and local 
government  fulfilling  key  legislative  and  administrative 
tasks,  notably  adoption  of 
implementing 
legislation,  co-ordinated  action  to  meet  environmental 
objectives  and  correct  decision-making  on  matters  such 
as  industrial  permits.  Beyond  fulfilment  of  these  tasks, 
government  must 
to  ensure  day-to-day 
compliance  by  economic  operators,  utilities  and 
individuals  ("compliance  assurance").  Civil  society  also 
has  a  role  to  play,  including  through  legal  action.  To 
underpin the roles of all actors, it is crucial to collect and 
share  knowledge  and  evidence  on  the  state  of  the 
environment  and  on  environmental  pressures,  drivers 
and impacts. 

intervene 

sound 

Equally,  effective  governance  of  EU  environmental 
legislation  and  policies  benefits  from  a  dialogue  within 
Member  States  and  between  Member  States  and  the 
Commission  on  whether  the  current  EU  environmental 
legislation  is  fit  for  purpose.  Legislation  can  only  be 
properly 
into  account 
experiences  at  Member  State  level  with  putting  EU 
commitments  into  effect.  The  Make  it  Work  initiative,  a 
Member  State  driven  project,  established 
in  2014, 
organizes a discussion on how the clarity, coherence and 
structure  of  EU  environmental 
legislation  can  be 
improved without lowering existing protection standards. 

implemented  when 

it  takes 

Effective  governance  within  central,  regional 
and local government 

Those  involved  in  implementing  environment  legislation 
at  Union,  national,  regional  and  local  levels  need  to  be 
equipped  with  the  knowledge,  tools  and  capacity  to 
improve  the  delivery  of  benefits  from  that  legislation, 
and the governance of the enforcement process. 

197 The Commission has work ongoing to improve the country-specific 

knowledge about quality and functioning of the administrative 
systems of Member States. 

Capacity to implement rules 

is 

that 

crucial 

regional  and 

It 
local 
central, 
administrations  have  the  necessary  capacities  and  skills 
and training to carry out their own tasks and co-operate 
and  co-ordinate  effectively  with  each  other,  within  a 
system of multi-level governance. 

to 

According 
the  World  Bank  2015  Worldwide 
Governance  Indicators,  Italy  scores  well  below  the  EU 
indicator, 
average  for  the  government  effectiveness 
which  captures  the  perceptions  of  the  quality  of  public 
services,  the  capacity  of  the  civil  service  and 
its 
independence from political pressures, and the quality of 
policy  formulation.198  A  CSR  was  adopted  in  2015  to 
improve the institutional framework and modernising the 
public administration.  The Government has passed a law 
in August 2015 to improve the public administration, and 
more steps were announced for 2016199. The Commission 
has  again  proposed  a  CSR  for  2016200  on  implementing 
reform  of 
the  public  administration  which  has 
environmental importance as it does for other sectors201. 

Several  factors  underlie  the  reduced  effectiveness  of 
actions  in  Italian  public  administrations.  Competences 
local 
are  unclearly 
central  and 
shared  among 
intra 
administrations,  generating  overlapping  and 
institutional 
conflicts.  These  make  administrative 
processes  uncertain  both  in  terms  of  duration  and 
outcome.  Furthermore,  the  lack  of  transparency  and 
public  control  over  the  administrative  activities  reduces 
the accountability of the public administration202. 

198World Bank - Worldwide Governance Indicators  
199 Programma Nazionale di Riforma 2016, April 2016, p.3 & pp.87-91, 

(Law 124/2015) 

200 2016 CSR proposed 18.05.16 
201 this CSR also refers to stepping up the fight against corruption by 
revising the statute of limitations and reducing the length of civil 
justice proceedings by enforcing reforms and through effective case 
management. 

202 European Commission 2016  Country Report for Italy 

Environmental Implementation Report – Italy 

 
 
 
 
                                                            
 
                                                            
The 2013 European Quality of Government Index gives a 
similar  picture  with  Italy  well  below  the  EU  average, 
ranking  23rd  of  the  28  EU  Member  States203.  Peculiarly, 
Italy  shows  the  widest  variation  across  EU  regions  with 
Trento  the  highest  placed  region  and  Campania  the 
lowest. 

The  implementation  framework  for  the  environment  is 
fragmented  and  essentially  reactive.  Furthermore,  it  is 
recognized  that  administrative  capacity  to  implement 
environmental requirements is weak in the Mezzogiorno. 
Furthermore,  the  OECD  has  stated  that  the  Ministry  of 
Environment  is  under-resourced  to  allow  it  to  ensure 
environmental integration in all policy areas.204  

regional 

to  adopt 

Italy  agreed 
(and  national) 
Administrative Reinforcement Plans (PRAs205) to improve 
implementation  of  ESIF  in  part  as  a  reaction  to  the 
aforementioned  2015  CSR206.  The  PRAs  cover  also  non-
ESIF administrative capacity-building and should lead to a 
reform of the public administration and reinforcement of 
managing 
The  National  Operational 
Programme  on  “Governance  and  Institutional  Capacity” 
2014-20  provides  another  opportunity  to 
improve 
administrative capacity also in the environmental sector. 

structures. 

The  fragmentation  at  regional  and  local  levels  and  red 
tape  are  also  recognized  to  cause  problems  for  the 
activities  of  SMEs207.  A  recent  administrative  change 
called  the  Single  Environmental  Authorisation208  has 
reduced  the  administrative  burden.  However,  it  is  still 
estimated that in 2015 'environmental issues' are seen as 
costing EUR 3.41 billion out of a total of around EUR 32 
billion  in  terms  of  administrative  burden  by  the  first 
Italian Measurement Programme 2008-12. 

Reforms of the governance of national parks & protected 
areas and of the waste consortia were announced in the 
2016 National Reform Programme209. 

Environmental  policy  developments  in  Italy  are  mainly 
driven by EU Regulations and Directives. However, there 
has  been  a  consistent  problem  with  late  transposition. 
This  has  resulted  in  several  infringements  and  a  high 
number of complaints to the Commission. The situation is 
further complicated by two levels of transposition, first at 
national  and 
If  the  national 
transposition  is  incorrect,  this  has  a  knock  on  effect  on 
the regional level, e.g. the situation with the EIA Directive 
up until November 2015.  

later  regional 

level. 

Italy  has  also  a  considerable  number  of  infringements 
relating  to  the  application  of  EU  environmental  law, 

Italy  29 

some of which were established and penalised by the EU 
Court  of  Justice  in  areas  such  as  management  of  waste. 
Improving  the  administrative  capacity  is  vital  to  address 
such implementation gaps.  

Italian 

In some of the environmental cases where individuals or 
NGOs have gained access before the national courts over 
the  past  years,  the 
judges  referred  several 
requests  for  preliminary  rulings  to  the  EU  Court  of 
Justice.  This  represented  a  valuable  contribution  to  the 
development  of  EU  environment  law,  since  preliminary 
rulings  enable  the  Court  of  Justice  to  give  a  coherent 
interpretation of the EU law. 

Coordination and integration 

In the light of its decentralised institutional setting which 
is  one  of  the  fundamental  principles  of  administrative 
organization  and  is  a  constitutional  principle,  Italy  has 
established the Inter-ministerial Committee for European 
Affairs210. This high-level political forum works under the 
Presidency  of  the  Council  of  Ministers  with  the  aim  of 
ensuring  political  coordination  among  national  and 
regional authorities in relation to the European dossiers. 
The  Inter-ministerial  Committee  for  European  Affairs  is 
assisted  by  the  Technical  Committee  of  Evaluation211 
which  facilitates  the  policy  convergence  and  synergies, 
among  the  Ministries'  representatives  and  the  Regions 
on  specific 
in  a  timely  and 
effective manner. 

implementation 

issues 

At  national 
level,  the  prime  responsibility  for  co-
ordinating  environmental  matters  lies  with  the  Ministry 
of  Environment,  Land  and  Sea.  Although  the  Ministry 
does  not  benefit  from  a  specific  National  Operational 
Programme on “Environment” funded by the ESIF, many 
projects/initiatives  have  been  proposed  to  integrate 
environmental  objectives  and  actions  in  other  National 
for 
Operational  Programmes.  Other  key  ministries 
environmental integration are: the Ministry of Economic 
Development;,  the  Ministry  of  Agriculture,  Food  and 
Forestry;    the  Ministry  of  Education,  University  and 
Research;,  the  Ministry  of  Infrastructure  and  Transport; 
and the Ministry of Health; the aforementioned National 
Cohesion  Agency 
is  also  a  key  actor.  The  regions, 
provinces  and  municipalities  have  also  environmental 
competences.  The  general  legislative  power  belongs  to 
the  State  and  the  Regions  on  an  equal  footing. 
Furthermore,  Regional  Environmental  Agencies  (ARPAs) 
exist  for  controlling  pollution,  monitoring  and  technical 
support  and  the  national  Institute  for  Environmental 
Research (ISPRA)212 has been given the role for ensuring 
that  regional  agencies  perform  in  a  uniform  manner  in 

203 Charron N., 2013. European Quality of Government Index (EQI) 
204 OECD, Environmental Performance Review Italy 2013 
205 Programma Rafforzamento Amministrativa 
206Partnership Agreement 2014-20. 
207 European Commission, Small Business Act Italy Fact Sheet, 2015   
208 Autorizzazione Unica Ambientale (AUA) 
209 Programma Nazionale di Riforma 2016, April 2016, p.58 

210 Comitato Interministeriale per gli Affari Europei 
Law No. 234 of 24 December 2012, Art. 2 
211 Comitato Tecnico di Valutazione 
Law No. 234 of 24 December 2012, Art. 19  
212 Istituto superiore per la protezione e la ricerca ambientale 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
June 2016. 

A 

SDGs213. 

The  sustainable  development  strategy  has  not  been 
updated  since 2002. A  public  consultation was  launched 
in  March 2016  on an update  of  the  strategy  introducing 
Sustainable 
the 
Commission 
Development214  was  established  in  2002  as  part  of  the 
Committee  for  Economic  Planning215,  which  is  the  main 
inter-ministerial  body  that  defines  national  economic 
policy,  outlines  multi-year  budgets  and  monitors  their 
implementation. However, the OECD has judged in 2013 
that  the  Commission  on  Sustainable  Development  has 
been largely inactive216.  

on 

The  Collegato  Ambientale  foresees  updating  of  the 
National  Strategy  on  Sustainable  Development  every 
three  years.  It  should  be  noted  that  there  is  also  no 
environmental  action  plan  at  national  level,  although 
these exist in some regions217. 

Italy  has taken  significant  steps  towards  the  inclusion  of 
the  environmental  dimension 
into  budgetary  and 
financial  issues  with  the  creation  of  the  BES  indicator 
system  (Wellbeing,  Equal  and  Sustainable)218.  The  BES 
indicators  are  organised  in  130  sub-indicators  in  12 
fields219.  The  law220  establishing  BES  also  creates  an  ad 
hoc  Committee  made  of  representatives  from  the 
Ministry  of  Economy  and  Finance  (MEF),  Bank  of  Italy, 
the  National  Institute  of  Statistics  (ISTAT)221  and  high-
level  experts  from  the  academic  and  research  field  to 
identify the indicators that will be attached to the Annual 
Financial  Law222.  Furthermore,  MEF  is  tasked  with  the 
production  of  an  annual  analysis  reporting  back  to  the 
parliament by 15 February each year as regards progress 
and trends of the indicators. 

Following  the  introduction  of  a  law  in  2005,  Regulatory 
Impact Assessments (RIA) are formally required for every 
legislative  proposal  in  Italy.  However,  the  systematic 
application of RIA varies between the different sectors of 
the Italian public administration223. 

More  robust  and  systematic  use  of  RIAs  and  Strategic 
Environmental  Assessments  (SEAs),  as  well  as  ex  post 
evaluation  of  policies,  would  also  help  to  mainstream 

213 Ministry of Environment – Press Release 31.03.16  
214 Ministry of Environment, Sustainable Development Strategy 
215 Comitato interministeriale per la programmazione economica 

(CIPE) 

216OECD, Environmental Performance Review Italy 2013 
217 European Environment Agency, More from less – material resource 

efficiency in Europe. 2015 overview of policies, instruments and 
targets in 32 countries, 2016, Italy report, p.9 

218 Benessere equo e sostenibile 
219 BES webpage, ISTAT 
220 Law No. 163 of 4 August  2016 n° 163, Art 1,6 & Art.14 G.U. 

25/08/2016 

221 Istituto nazionale di statistica 
222 Documento di Economia e Finanza 
223 RPA 2014, Economic and Social Benefits of Environmental 
Protection and Resource Efficiency Related to the European 
Semester, study for European Commission 

Italy  30 

environmental  considerations  into  sectoral  policies  and 
programmes.  These  efforts  should  be  grounded  in  the 
development  of  a  more  effective  assessment  culture224. 
The  transposition  of  the  revised  Environmental  Impact 
Assessment  (EIA)  Directive225  will  be  an  opportunity  to 
streamline  the  regulatory  framework  on  environmental 
assessments.  This  approach  would  reduce  duplication 
and  avoids  unnecessary  overlaps 
in  environmental 
for  a  particular  project. 
assessments  applicable 
Moreover,  streamlining  helps  reducing  unnecessary 
administrative  burden  and  accelerates  decision-making, 
without  compromising  the  quality  of  the  environmental 
assessment  procedure.  The  Commission  has  issued  a 
guidance document in 2016226 regarding the setting up of 
coordinated 
are 
simultaneously  subject  to  assessments  under  the  EIA 
Directive, Habitats Directive, Water Framework Directive, 
and the Industrial Emissions Directive. 

joint  procedures 

and/or 

that 

in 

 Italy  has  already  integrated/coordinated  environmental 
assessment  procedures  under  the  EIA  Directive  (SEA, 
Habitats,  Integrated  Emissions  Directives)  which  can  be 
considered  a  good  practice.  Lessons  should  be  learnt 
from  past  environmental  crises,  e.g.  recurring  flooding 
incidents 
Italy,  waste 
central  and  northern 
management in Campania and Lazio, water in Sicily, and 
traffic congestion in the Venice-Mestre area, all examples 
which have been cited earlier in this Country Report.  The 
lack  of  coordination  among  regions  also  affects  the 
the  Water  Framework 
proper 
Directive.  The occurrence of crises in Italy is linked to the 
convergence or divergence of subnational units (regions, 
provinces  and  municipalities)  in  terms  of  economic  and 
environmental  performance.227  The  appointment  of 
emergency  commissioners  has  been  used  to  deal  with 
crises, but this does not entail derogation from EU rules. 

implementation  of 

The  Collegato  Ambientale  (Article  51)  updates  the 
governance  structure  for  planning  in  the  field  of  water 
and soil conservation (approved in July 2016 by the State-
Regions  Conference228),  making  operational  the  District 
Basin Authority. 

Some  environmental  integration  is  taking  place.    One 
good  practice example  is  the  Environmental Network229, 

224 OECD, Environmental Performance Review Italy 2013 
225 the transposition of Directive 2014/52/EU is due in May 2017 
226 European Commission, 2016. Commission notice — Commission 
guidance document on streamlining environmental assessments 
conducted under Article 2(3) of the Environmental Impact 
Assessment Directive (Directive 2011/92/EU of the European 
Parliament and of the Council, as amended by Directive 2014/52/EU). 

227 Waste management beyond the Italian north-south divide: spatial 
analyses of geographical, economic and institutional dimensions, 
Mazzanti M and Montini A (2014), Handbook on waste management 
edited by T. Kinnaman & K. Takeuchi (E. Elgar). 

228 Conferenza Stato Regioni 
229 Rete delle Autorità Ambientali e delle Autorità di Gestione. The 

Italian network  regularly participates in the meetings and activities 
of the European ENEA-MA. 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
Italy  31 

a  network  of  national  &  regional  environmental  and 
managing  authorities  ensuring  integration  through  the 
ESIF  activities  in  existence  for  over  10  years.  While  the 
Network  has  produced  many  useful  outputs  and 
facilitated  the  exchange  of  experiences,  it  has  been 
rather  intermittent  in  its  activities.  Another  example  is 
the register of the environmental sustainability of school 
buildings230. 

In the framework of the REACH Regulation, the national 
technical coordination committee (CTC) represents a best 
practice concerning governance at the national level. The 
CTC231gathers 
the  public 
relevant  branches  of 
administration in order to agree a common position both 
at the national and at the EU level. In order to share this 
governance  experience,  a  website232  has  also  been 
established,  allowing  a  continuous  dialogue  among  all 
relevant stakeholders. 

The  relatively  low  priority  assigned  to  the  environment 
by  the  national  and  some  regional  governments  over 
much  of  the 
last  decade,  coupled  with  a  highly 
decentralised governance system, has made it difficult to 
scale  up  positive  environmental  initiatives,  despite  the 
efforts  deployed  by  the  environmental  authorities233. 
However,  recent  initiatives,  for  example  to  promote  a 
green  economy,  indicate  an  increased  emphasis  on 
environmental issues by the government and should help 
co-ordination. 

Suggested action 

  Address  the  fragmentation  at  regional  and  local levels 
level  coordination 

by  developing  better  national 
mechanisms for environment.  

Compliance assurance 

EU  law  generally  and  specific  provisions  on  inspections, 
other  checks,  penalties  and  environmental  liability  help 
lay  the  basis  for  the  systems  Member  States  need  to 
have 
secure  compliance  with  EU 
to 
environmental rules. 

in  place 

Public  authorities  help  ensure  accountability  of  duty-
holders by monitoring and promoting compliance and by 
taking credible follow-up action (i.e. enforcement) when 
breaches occur or liabilities arise. Compliance monitoring 
can  be  done  both  on  the 
initiative  of  authorities 
themselves  and  in  response to  citizen complaints. It  can 
involve  using  various  kinds  of  checks, 
including 
inspections  for  permitted  activities,  surveillance  for 
possible  illegal  activities,  investigations  for  crimes  and 
audits for systemic weaknesses. Similarly, there is a range 

include  administrative  action 

of  means  to  promote  compliance,  including  awareness-
raising  campaigns  and  use  of  guidance  documents  and 
online  information  tools.  Follow-up  to  breaches  and 
liabilities  can 
(e.g. 
withdrawal of a permit), use of criminal law234 and action 
law  (e.g.  required  remediation  after 
under 
damage  from  an  accident  using 
liability  rules)  and 
contractual  law  (e.g.  measures  to  require  compliance 
with  nature  conservation  contracts).  Taken  together,  all 
of these interventions represent "compliance assurance" 
as shown in Figure 15.  

liability 

Best  practice  has  moved  towards  a  risk-based  approach 
at strategic and operational levels in which the best mix 
of compliance monitoring, promotion and enforcement is 
directed at the most serious problems. Best practice also 
recognises  the  need  for  coordination  and  cooperation 
between  different  authorities  to  ensure  consistency, 
avoid  duplication  of  work  and  reduce  administrative 
burden. Active participation in established pan-European 
networks  of  inspectors,  police,  prosecutors  and  judges, 
such as IMPEL235, EUFJE236, ENPE237 and EnviCrimeNet238, 
is  a  valuable  tool  for  sharing  experience  and  good 
practices. 

Figure 15: Environmental compliance assurance 

Currently, there exist a number of sectoral obligations on 
inspections  and  the  EU  directive  on  environmental 
liability  (ELD)  239  provides  a  means  of  ensuring  that  the 
"polluter-pays  principle" 
is  applied  when  there  are 
accidents  and  incidents  that  harm  the  environment. 
There 
information  giving 
insights  into  existing  strengths  and  weaknesses  in  each 
Member State.  

is  also  publically  available 

For  each  Member  State,  the  following  were  therefore 
reviewed:  use  of  risk-based  compliance  assurance; 

230Programma Nazionale di Riforma 2016, April 2016, p.83 
231Ministry of Environment, Ministerial Decree 22.11.2007 
232 REACH - Prodotti Chimici: informiamo i cittadini   
233 For example, in the water field, this is also reflected in the low 

quality of the data monitored and reported under the Drinking Water 
and Urban Wastewater Treatment Directives. 

234 European Union, Environmental Crime Directive 2008/99/EC. 
235 European Union Network for the Implementation and Enforcement 

of Environmental Law 

236 European Union Forum of judges for the environment 
237 The European Network of Prosecutors for the Environment 
238 EnviCrimeNet 
239 European Union, Environmental Liability Directive 2004/35/CE 

Environmental Implementation Report – Italy 

 
 
                                                            
 
                                                            
coordination  and  co-operation  between  authorities  and 
participation in pan-European networks; and key aspects 
of implementation of the ELD based on the Commission's 
recently  published  implementation  report  and  REFIT 
evaluation.240  

In  Italy,  some  positive  developments  have  occurred  to 
underpin  risk-based  compliance  assurance: 
(i)  For 
instance, the regional environmental agency of Lombardy 
(ARPA  Lombardia)  has  developed  a  good  inspection 
planning  system,  mechanisms  for  dialogue  with  the 
regulated  community  to  promote  compliance  general 
guidance  on  industrial  inspections,  extensive  training 
plans241  and  an  innovative  use  of  earth  observation 
techniques. (ii) A recent revision of its Criminal Code has 
put  Italy  in  a  better  position  to  tackle  the  most  serious 
environmental offences. 

However,  risk-based  approaches  and  data  collection  are 
not  applied  consistently  across  the  country242.  The  low 
deterrence  of  sanctions  imposed  in  practice  and  lack  of 
cooperation between different environmental inspection 
them  and  police  and 
authorities  and  between 
prosecutors represent challenges243.  

Up-to-date  information  is  lacking  in  relation  to  the 
following:  (i)  Data-collection  arrangements  to  track  the 
use  and  effectiveness  of  different  compliance  assurance 
interventions. 
(ii)  The  extent  to  which  risk-based 
methods are used to direct compliance assurance both at 
in  specific  problem-areas 
the  strategic 
highlighted  elsewhere  in  this  Country  Report,  i.e.  non-
compliance with waste rules244, the threats to protected 
habitat  types  and  species,  air  quality  problems,  the 
pressures  on  water  quality  from  diffuse  water  pollution 
and deficits in urban waste-water treatment. 

level  and 

Italian regional inspection authorities actively contribute 
to the work of IMPEL. Italy is also strongly involved in the 
activities of the EUFJE and EnviCrimeNet. Italy is leading a 
project  on  combating  environmental  crime,  with 
participation  of  Belgium,  Spain,  Romania,  Belgium  and 
involvement  of  EnviCrimeNet,  Europol,  Eurojust  and 

240 COM(2016) 204 final and COM(2016) 121 final of 14.4.2016. This 

highlighted the need for better evidence on how the directive is used 
in practice; for tools to support its implementation, such as guidance, 
training and ELD registers; and for financial security to be available in 
case events or incidents generate remediation costs. 

241 IMPEL IRI Italy, p. 4, 19, 21 and 30. 
242 Amec Foster Wheeler Environment & Infrastructure/Millieu, 

'Assessment and Summary of the Member States implementation 
reports for the IED, IPPCD, SED and WID' 2016, p. 265, study for 
European Commission  

243 IMPEL IRI Italy, p. 4 and 13.  
244 Since the 1990s, the Commission has been obliged to pursue 

infringement procedures targeting significant number of irregular 
landfills in Italy. Lack of proper compliance monitoring and effective 
measures to tackle organised waste crime have been identified to be 
amongst the causes of the Naples waste crisis, see Study 
'Implementing EU Waste Legislation for Green Growth', 
BioIntelligence Service, p. 175. 

Interpol245.  

Italy  32 

Information  in  Italy's  report  for  the  period  2007-13 
suggests  a  high  incidence  of  cases  potentially  falling 
within the scope of the ELD, as well as a high number of 
requests for action by Italian citizens or NGOs. However, 
while 
in  the 
Italian  authorities  have  participated 
Commission  training  programme  for  the  ELD,  Italy  has 
not  developed  guidance  or  other  administrative  support 
tools, and there is no register for environmental liability 
cases.  As 
for 
remediation  where  the  operator  cannot),  information  is 
incomplete.  The  country  did  not  establish  mandatory 
financial  security,  but  there  is  an  insurance  pool246 
operating and sufficient insurance cover seems to be on 
offer (although not taken up).  

financial  security 

(to  pay 

regards 

Suggested action 

  Improve 

transparency  on 

the  organisation  and 
functioning  of  compliance  assurance  and  on  how 
significant risks are addressed.  

  Step  up  efforts 

in  the 

implementation  of  the 
Environmental  Liability  Directive  (ELD)  with  proactive 
initiatives, in particular by setting up a national register 
of  ELD  incidents  and  drafting  national  guidance.  Italy 
should  moreover  take  further  steps  to  ensure  an 
effective system of financial security for environmental 
liabilities  (so  that  operators  not  only  have  insurance 
cover available to them but actually take it up). 

Public participation and access to justice 

The  Aarhus  Convention,  related  EU  legislation  on  public 
participation and environmental impact assessment, and 
the case-law of the Court of Justice require that citizens 
and  their  associations  should  be  able  to  participate  in 
decision-making  on  projects  and  plans  and  should  enjoy 
effective environmental access to justice. 

Citizens  can  more  effectively  protect  the  environment  if 
they can rely on the three "pillars" of the Convention on 
Access  to  Information,  Public  Participation  in  Decision-
making  and  Access  to  Justice  in  Environmental  Matters 
("the  Aarhus  Convention").  Public  participation  in  the 
administrative  decision  making  process  is  an  important 
element to ensure that the authority takes its decision on 
the  best  possible  basis.  The  Commission  intends  to 
examine compliance with mandatory public participation 
requirements more systematically at a later stage. 

245 The EU funded "Tackling Environmental Crimes through 

Standardised Methodologies – TECUM' project aims at reinforcing 
the capacities of police services and specialized agencies in fighting 
environmental crime, especially where organized crime is involved. 
The project will tackle illicit waste trafficking as well as related 
evolutionary forms of environmental crime, addressing the problems 
by an operational inter-agency approach aimed at standardization of 
transnational investigation procedures.  

246Pool Inquinamento 

Environmental Implementation Report – Italy 

 
 
                                                            
                                                            
Access  to  justice  in  environmental  matters  is  a  set  of 
guarantees  that  allows  citizens  and  their  associations  to 
challenge  acts  or  omissions  of  the  public  administration 
before  a  court. 
for  decentralised 
It 
implementation of EU environmental law. 

is  a 

tool 

For  each  Member  State,  two  crucial  elements  for 
effective  access  to  justice  have  been  systematically 
reviewed:  the  legal  standing  for  the  public,  including 
NGOs and the extent to which prohibitive costs represent 
a barrier. 

The  Italian  legal  system  grants  NGOs  legal  standing  in 
environmental  matters  in  particular  through  case  law. 
However,  the  conditions  are  not  codified  in  a  way  that 
the  right  to  take  an  environmental  case  to  the  court  is 
laid down in national legislation with sufficient precision 
and  clarity.  It  seems,  for  instance,  that  it  is  not  clear 
whether  local  branches  of  recognized  environmental 
NGOs  are  granted  legal  standing  before  the  courts.  The 
case law on that issue is not uniform247.  

Suggested action 

  .Take  the  necessary  measures  to  ensure  standing  of 
environmental NGOs to challenge acts or omissions of 
a public authority in all sectoral EU environmental laws, 
in  full  compliance  with  EU  law  as  well  as  the  Aarhus 
Convention. 

Access 
evidence 

to 

Information,  knowledge  and 

The  Aarhus  Convention  and  related  EU  legislation  on 
access  to  information  and  the  sharing  of  spatial  data 
require that the public has access to clear information on 
the environment, including on how Union environmental 
law is being implemented. 

authorities 

public 
the  public, 

It is of crucial importance to public authorities, the public 
and business that environmental information is shared in 
an  efficient  and  effective  way.  This  covers  reporting  by 
active 
and 
businesses 
dissemination 
through 
to 
electronic means. 
The  Aarhus  Convention248,  the  Access  to  Environmental 
Information  Directive249  and  the  INSPIRE  Directive250 
together  create  a  legal  foundation  for  the  sharing  of 
environmental  information  between  public  authorities 
and with the public. They also represent the green part of 

and 
increasingly 

Italy  33 

the  ongoing  EU  e-Government  Action  Plan251.  The  first 
two 
to  provide 
information to the public, both on request and actively.  

create  obligations 

instruments 

The  access  to  EIA  and  SEA  information  and  data  is 
granted  both  at  national  level  (EIA-SEA  Portal  of  the 
Ministry  of  Environment252)  and  at 
the  different 
administration 
through  dedicated  websites, 
levels 
fulfilling  the  requirements  of  the  national  legislation 
and  public 
concerning 
participation  in  environmental  assessments  procedures 
and with the intention of being in line with the provisions 
of the revised EIA Directive (Articles 5.6).  

informational 

access 

to 

The  INSPIRE  Directive  is  a  pioneering  instrument  for 
electronic  data-sharing  between  public  authorities  who 
can  vary  in  their  data-sharing  policies,  e.g.  on  whether 
access to data is for free. The INSPIRE Directive sets up a 
geoportal which indicates the level of shared spatial data 
in  each  Member  State  –  i.e.  data  related  to  specific 
locations,  such  as  air  quality  monitoring  data.  Amongst 
other  benefits 
it  facilitates  the  public  authorities' 
reporting obligations.  

For  each  Member 
accessibility  of 
State, 
environmental data (based on what the INSPIRE Directive 
envisages)  as  well  as  data-sharing  policies  ('open  data') 
have been systematically reviewed253.  

the 

Italy's  performance  on  the 
implementation  of  the 
INSPIRE  Directive  as  enabling  framework  to  actively 
disseminate  environmental  information  to  the  public  is 
lagging behind. Italy has indicated in the 3-yearly INSPIRE 
implementation report254 that the necessary data-sharing 
policies  allowing  access  and  use  of  spatial  data  by 
national  administrations  -  including  in  particular  local 
municipalities  -  other  Member  States'  administrations 
and EU institutions without procedural obstacles are not 
yet available. 

Within  Italy,  the  creation,  management  and  publication 
of  spatial  information  is  often  institutionally  assigned  to 
small  municipalities,  that  are  not  able  to make  available 
spatial  information  in  conformity  with  the  standards 
lack  of 
required  by  the 
technological infrastructure and of qualified personnel. 

INSPIRE  Directive  due  to 

Italy  recently  has  started  the  preparation  of  legislative 
for 
proposals  to  establish  the  necessary 
overcoming  the  existing  impediments  to  the  sharing  of 
spatial  data.  It  should  be  noted  though  that  in  order  to 
address  the  problems  highlighted  above  the  National 

licences 

247 European Commission, 2012/2013 access to justice in 

251 European Union, EU eGovernment Action Plan 2016-2020 - 

environmental matters 

248 UNECE, 1998. Convention on Access to Information, Public 
Participation in Decision-Making and Access to Justice in 
Environmental Matters 

249 European Union, Directive 2003/4/EC on public access to 

environmental information 

250 European Union, INSPIRE Directive 2007/2/EC 

Accelerating the digital transformation of government COM(2016) 
179 

252 Ministry of Environment, EIA-SEA Portal  
253 Upon request by the Commission, most Member States provided 
an INSPIRE Action Plan addressing implementation issues. These 
plans are currently being assessed by the Commission.  

Environmental Implementation Report – Italy 

 
 
  
                                                            
                                                            
 
Italy  34 

for  Spatial  and  Environmental 

Information 
Council 
(CNITA)255  was  set  up  and  aims  to  carry  out  a  detailed 
assessment  on  how  it  can  create  an  open  data  policy 
taking  also  into  account  the  priorities  defined  in  the 
Digital Single Market. 
Assessments of monitoring reports issued by Italy256 and 
the  spatial  information  that  Italy  has  published  on  the 
INSPIRE  geoportal257 
that  not  all  spatial 
indicate 
and 
evaluation 
for 
needed 
information 
implementation of EU environmental law has been made 
available  or  is  accessible.  The  larger  part  of  this  missing 
spatial  information  consists  of  the  environmental  data 
required  to  be  made  available  under  the  existing 
reporting 
EU 
environmental law.  

and  monitoring 

regulations 

the 

of 

Suggested action 

  Critically  review  the  effectiveness  of  its  data  policies 
into 
taking 

'best  practices' 

them, 

and  amend 
consideration.  

  Identify and document all spatial data sets required for 
the  implementation  of  environmental  law,  and  make 
the  data  and  documentation  at  least  accessible  'as  is' 
to  other  public  authorities  and  the  public  through  the 
digital services foreseen in the INSPIRE Directive. 

255 Consulta nazionale per l'informazione territoriale e ambientale, 

Decree 12.01.2016 

256 Inspire indicator trends 
257 INSPIRE Resources Summary Report 

Environmental Implementation Report – Italy