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Europaudvalget 2025
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EUROPEAN

COMMISSION

Brussels, 27.5.2025

COM(2025) 285 final

2025/0148 (NLE)

Proposal for a

COUNCIL IMPLEMENTING DECISION

amending Implementing Decision (EU) (ST 10160/21 INIT; ST 10160/21 ADD 1 REV 2)

of 13 July 2021 on the approval of the assessment of the recovery and resilience plan for

Italy

{SWD(2025) 145 final}

kom (2025) 0285 - Ingen titel

2025/0148 (NLE)

Proposal for a

COUNCIL IMPLEMENTING DECISION

amending Implementing Decision (EU) (ST 10160/21 INIT; ST 10160/21 ADD 1 REV 2)

of 13 July 2021 on the approval of the assessment of the recovery and resilience plan for

Italy

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the Functioning of the European Union,

Having regard to Regulation (EU) 2021/241 of the European Parliament and of the Council of

12 February 2021 establishing the Recovery and Resilience Facility

, and in particular Article

20(1) thereof,

Having regard to the proposal from the European Commission,

Whereas:

(1)

Following the submission of the national recovery and resilience plan (‘RRP’) by Italy

on 30 April 2021, the Commission has proposed its positive assessment to the

Council. The Council approved the positive assessment by means of the Council

Implementing Decision of 13 July 2021

. That Council Implementing Decision was

amended on 19 September 2023

, on 8 December 2023

, on 14 May 2024

, and on 18

November 2024

On 21 March 2025, Italy made a reasoned request to the Commission to make a

proposal to amend the Council Implementing Decision of 13 July 2021 in accordance

with Article 21(1) of Regulation (EU) 2021/241 on the grounds that the RRP is

partially no longer achievable because of objective circumstances. On that basis, Italy

has submitted an amended RRP.

The amendments to the RRP submitted by Italy because of objective circumstances

concern 67 measures.

Italy has explained that two measures are partially no longer achievable, because of

lack of or change in demand. This concerns, respectively, M2C2-51 under Investment

3.2 Hydrogen Use in hard-to-abate industry under Mission 2 Component 2; M7-18,

OJ L 57, 18.2.2021, p. 17.

ST 10160/21 INIT ; ST 10160/21 ADD 1 REV 2.

ST 12259/23 INIT.

ST 16051/23 INIT; ST 16051/23 ADD 1; ST 16051/23 ADD 1 REV 1 (ga).

ST 9399/24 INIT; ST 9399/24 ADD 1.

ST 15114/24 INIT; ST 15114 ADD 1 REV 1.

(2)

Amendments based on Article 21 of Regulation (EU) 2021/241

(3)

(4)

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M7-20 and M7-21 under Investment 6. Cross-border electricity interconnection

projects between Italy and neighbouring countries under Mission 7. On this basis, Italy

has requested to extend the implementation timeline of M7-20 and M7-21 under

Investment 6. Cross-border electricity interconnection projects between Italy and

neighbouring countries, under Mission 7. The Council Implementing Decision of 13

July 2021 should be amended accordingly.

(5)

Italy has explained that six measures are partially no longer achievable, because of

supply chain disruptions. This concerns, respectively, M3C1-5 and M3C1-6 under

Investment 1.1 - High-speed railway connections to the South for passengers, M3C1-9

under Investment 1.2 - High-speed lines in the North connecting to rest of Europe,

M3C1-11 under Investment 1.3: Diagonal connections and freight, measure

description under Investment 1.5: Strengthening metropolitan nodes, measure

description under Investment 1.6: Strengthening regional lines - Upgrading of regional

railways (management RFI), M3C1-17bis under Investment 1.7 - Upgrading,

electrification and resilience of railways South and key national links under Mission 3

Component 1. On this basis, Italy has requested to amend the aforementioned

milestones and targets. The Council Implementing Decision of 13 July 2021 should be

amended accordingly.

Italy has explained that M2C2-4 under Investment 1.4 Development of biomethane,

according to criteria for promoting the circular economy is partially no longer

achievable, because of high inflation. On this basis, Italy has requested to amend the

aforementioned target. The Council Implementing Decision of 13 July 2021 should be

amended accordingly.

Italy has explained that M5C2-16 under Investment 5 - Urban Integrated Plans -

Overcoming illegal settlements to fight labour exploitation in agriculture under

Mission 5 Component 2 is partially no longer achievable, because of the need to

follow unexpected lengthier preparatory procedures, due to unforeseen changes in the

population of the illegal settlements, which have necessitated lengthier preparatory

procedures. On this basis, Italy has requested to extend the implementation timeline of

the aformentioned target. The Council Implementing Decision of 13 July 2021 should

be amended accordingly.

Italy has explained that 37 measures have been amended to implement better

alternatives in order to achieve the original ambition of the measure. This concerns

M1C1-18 and M1C1-27 under measure Investment 1.3.1 - National digital data

platform, M1C1-23 under measure Investment 1.4.6: Mobility as a Service for Italy,

M1C1-49 and M1C1-50 under measure Investment 1.8: Recruitment procedures for

administrative courts, M1C1-60 under Reform 1.9: Reform of the public

administration, M1C1-72ter and M1C1-72quater under measure Reform 1.11:

Reduction of late payments by public administrations and health authorities, M1C1-

73ter, M1C1-84bis, M1C1-98 and M1C1-98bis under Reform 1.10: Reform of the

public procurement legislative framework, M1C1-144 under measure Investment 1.4.2

- Citizen inclusion - Accessibility improvement of digital public services, M1C1-145,

M1C1-146 under measure Investment 1.4.4 -Adoption scale up of the National Digital

Identity platforms (SPID, CIE) and the national registry (ANPR) under Mission 1

Component 1; M1C2-11, M1C2-12, M1C2-13 under Reform 2: Annual Competition

Laws, M1C2-15 under Investment 2: Innovation and technology of microelectronics

under Mission 1, Component 2; M1C3-3 under Investment - 1.2 Removal of physical

and cognitive barriers in museums, libraries and archives to enable wider access to and

participation in culture, M1C3-18 under Investment 2.3: Programmes to enhance the

(6)

(7)

(8)

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identity of places, parks and historic gardens under Mission 1, Component 3; M2C1-

16ter under Investment 1.1 - Implementation of new waste management plants and

modernization of existing plants, M2C1-23, M2C1-23 under Investment 3.4: Fondo

Contratti di Filiera (FCF) to support supply-chains contracts for the agri-food, fishing

and aquaculture, forestry, floriculture and plant nursery sectors, under Mission 2,

Component 1; M2C2-28, M2C2-29 under Investment 4.3 – Installation of charging

infrastructures, M2C2-38bis, M2C2-39, M2C2-40 under Investment 5.1 – Renewables

and Batteries, M2C2-42bis and M2C2-43 under Investment 5.4 – Support to start ups

and venture capital active in the ecological transition, M2C2-44 under Investment 1.1 -

Development of agri-voltaic systems, M2C2-47 under Investment 1.2 - Promotion of

RES for energy communities and jointly acting renewables self-consumers under

Mission 2 Component 2; M4C1-19 under Investment 3.2: School 4.0: innovative

schools, wiring, new classrooms and workshops, M4C1-23 under Investment 3.4:

Teaching and advanced university skills, M4C1-24 under Investment 1.6: Active

orientation in school-university transition, M4C1-25 under Investment 1.4:

Extraordinary intervention aimed at the reduction of territorial gaps in I and II cycles

of secondary school and at tackling school drop-out, under Mission 4, Component 1;

M4C2-1bis under Investment 1.2: Funding projects presented by young researchers,

M4C2-3 under Investment 3.3: Introduction of innovative doctorates that respond to

the needs of innovation by enterprises and promote the hiring of researchers by

companies, M4C2-21 and M4C2-21bis under Investment 3.2 – Financing start-ups

under Mission 4, Component 2; M5C1-14 under Investment 2 - Gender equality

certification system under Mission 5, Component 1; M5C2-18 under Investment 5 -

Urban Integrated Plans - EIB Fund-Of-Fund under Mission 5, Component 2; M5C3-9

under Investment1.3: Structured socio-educational interventions to combat educational

poverty in the South supporting the Third Sector under Mission 5, Component 3;

M6C1-6 under Investment 1.2: Home as the first place of care and telemedicine, under

Mission 6, Component 1; M6C2-2, M6C2-3 under Investment 2.1: Strengthening and

enhancement of the NHS biomedical research, under Mission 6, Component 2; M7-1

under Reform 1. Streamlining permitting procedures for renewable energy at central

and local level; M7-7 under Reform 4: Mitigation of financial risk associated with

renewable PPAs (Power Purchase Agreements), Investment 16, Support to SMEs for

self-production from renewable energy sources, M7-46, M7-47, M7-48 and M7-49

under Investment 17. Financial instrument to alleviate energy poverty. for energy

renovations of public residential housing and social housing, and low-income and

vulnerable households under Mission 7. On this basis, Italy has requested to amend the

aformentioned milestones and targets. Furthermore, Italy has requested to remove

milestones M1C1-61 under Reform 1.9: Reform of the public administration, targets

targets M1C1-64 and M1C1-65 under Investment 1.9: Provide technical assistance and

strengthen capacity building for the implementation of the Italian recovery and

resilience plan under Mission 1, Component 1, milestone M1C2-30, targets M1C2-31

and M1C2-32 under Investment 7. Support to the production system for the Ecological

Transition, Net Zero Technologies, and competitiveness and resilience of strategic

supply chains under Mission 1 Component 2, targets M2C2-29bis, M2C2-30bis,

M2C2-30ter under M2C2 Investment 4.3.1 – Installation of charging infrastructures

under Mission 2 Component 2; target M5C1-13 under Investment 2 - Gender equality

certification system under Mission 5 Component 1, milestone M7-8 under Reform 4:

Mitigation of financial risk associated with renewable PPAs (Power Purchase

Agreements) under Mission 7. Furthermore, Italy has requested to add milestone

M1C2-13bis under Reform 2: Annual Competition Laws under Mission 1 Component

2; targets M3C1-5 under Investment 1.1 - High-speed railway connections to the

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South for passengers and freight and M4C2-3bis under Investment 3.3: Introduction of

innovative doctorates that respond to the needs of innovation by enterprises and

promote the hiring of researchers by companies. The Council Implementing Decision

of 13 July 2021 should be amended accordingly.

(9)

Italy has explained that 20 measures have been amended to implement a better

alternative allowing to reduce the administrative burden, whilst still reaching the

objectives of the respective measure. This concerns Investment 1.6 - Digital

transformation of large central administration, M1C1-43 and M1C1-44 under Reform

1.4: Reform of civil justice, M1C1-155 under Investment 1.6.3 - Digitization of

National Social Security Institute (INPS) and National Institute for Insurance against

Accidents at work (INAIL) under Mission 1 Component 1; M1C3-27 under

Investment 4.3: Caput Mundi Next Generation EU for touristic great events under

Mission 1 Component 3; M2C2-34 and M2C2-35 under Investment 4.4.1:

Strengthening of the regional public transport bus fleet with zero-emission low-floor

buses, M2C2-34bis and M2C2-35bis under Investment 4.4.2: Strengthening of the

regional public transport railway fleet with zero emission trains and universal service

under Mission 2 Component 2, M2C3-8 under Investment 1.2 - Construction of

buildings, requalification and strengthening of public real estate assets partly or wholly

used by of the administration of justice under Mission 2 Component 3; M2C4-11bis

under Investment 2.1: Measures for flood and hydrogeological risk reduction, M2C4-

34, M2C4-24bis, M2C4-35 and M2C4-35bis under Investment 4.3 Investments in the

resilience of the irrigation agrosystem for better management of water resources under

Mission 2 Component 4; M3C1-19 and M3C1-20 under Investment 1.8 - Upgrading

railway stations (Rete Ferroviaria Italiana (RFI) management; in South) under Mission

3, Component 1; M3C2-7 under Investment 2.3: Cold ironing under Mission 3

Component 2; M4C1-12 under Investment 4.1: Extension in number and career

opportunities of PhDs (Research-oriented, Public Administration and Cultural

Heritage), M4C1-17 and M4C1-16 under Investment 3.1: New skills and new

languages, M4C1-20 under Investment 1.5: Development of the tertiary vocational

training system (ITS), under Mission 4 Component 1; M5C1-15bis and M5C1-16

under Investment 4 - Universal Civil Service under Mission 5 Component 1; M5C3-12

and the measure description under Investment 1.4: Infrastructural investments for the

Special Economic Zone under Mission 5 Component 3; M6C2-12 under Investment

1.3: Strengthening of the technological infrastructure and of the tools for data

collection, data processing, data analysis and simulation under Mission 6 Component

2; M7-4 under Reform 2: Environmental Harmful Subsidies, M7-14 and M7-15 under

Investment 4: Tyrrhenian link, M7-16 Investment 5: SA.CO.I.3, M7-31 Investment

11: Strengthening of the regional public transport railway fleet with zero emission

trains and universal service under Mission 7. On this basis, Italy has requested to

remove unnecessary background information or procedural elements that do not

contribute to the objectives of the measures, to clarify that certain elements relate to

the objectives or the context of the measures, and to simplify descriptions of measures

or milestones and targets that cause an unjustified administrative burden for reaching

the objectives of the respective measures. The Council Implementing Decision of 13

July 2021 should be amended accordingly.

Following the amendments to measures under Article 21 of Regulation (EU)

2021/241, Italy has further requested to add two new measures. This concerns target

M2C2-30 under measure Investment 4.5 - Private and light commercial vehicle fleet

renewal program with electric vehicles under Mission 2 Component 2 and milestones

M3C1-25 and M3C1-26 under Reform 1.3 - Boosting the efficiency of railway

(10)

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infrastructure in Italy under Mission 3, Component 1. On this basis, Italy has requested

to add the aforementioned milestones and targets. The Council Implementing Decision

of 13 July 2021 should be amended accordingly.

(11)

The Commission considers that the reasons put forward by Italy justify the

amendment(s) pursuant to Article 21(2) of Regulation (EU) 2021/241, and the Council

Implementing Decision of 13 July 2021 should be amended accordingly.

The distribution of milestones and targets in instalments should be modified to take

into account the amendments to the plan and the indicative timeline presented by Italy.

11 clerical errors have been identified in the text of the Council Implementing

Decision, affecting eight milestones and targets and seven measures under four

components. The Council Implementing Decision should be amended to correct these

clerical errors that do not reflect the content of the RRP submitted to the Commission

on 30 April 2021 as agreed between the Commission and Italy. Those clerical errors

relate to M1C1-20 under measure Investment 1.5 – Cybersecurity, M1C1-139 and

M1C1-147 under measure Investment 1.2 - Cloud enablement for local PA, M1C1-

140 under Investment 1.4.1 - Citizen experience - Improvement of the quality and the

usability of digital public services, M1C1-143 under Investment 1.6.4 - Digitization of

the Ministry of Defence under Mission 1 Component 1; M1C2-19 under Investment

3.1: Green islands, M1C2-23 under measure Investment 4: Satellite Technology and

Space economy under Mission 1 Component 2; M2C4-22 and M2C4-23 under

measure Investment 3.3 Re-naturification of Po area, under Mission 2 Component 4;

and the description of the following measures Investment 1.3 - Data and

interoperability under Mission 1 Component 1; Investment 7 – Sport and Social

Inclusion under Mission 5 Component 2. Those corrections do not affect the

implementation of the measures concerned.

The Commission has assessed the amended RRP against the assessment criteria laid

down in Article 19(3) of Regulation (EU) 2021/241.

In accordance with Article 19(3), point (db), of and Annex V, criterion 2.13, to

Regulation (EU) 2021/241, the measures included in the REPowerEU chapter are

expected to a large extent (Rating A) to have a cross-border or multi-country

dimension or effect.

The amendments affecting measures having a cross-border or multi-country dimension

or level concern Investment 6 - Cross-border electricity interconnection projects

between Italy and neighbouring countries, under Mission 7. The limited scope of the

amendments does not change the overall assessment of this criterion.

In accordance with Article 19(3), point (e), of and Annex V, criterion 2.5, to

Regulation (EU) 2021/241, the amended RRP contains measures that contribute to a

large extent (Rating A) to the green transition, including biodiversity, or to addressing

the challenges resulting therefrom. The measures supporting climate objectives

account for an amount which represents 39.5% of the amended RRP’s total allocation

and 75.7% of the total estimated costs of measures in the REPowerEU chapter

calculated in accordance with the methodology set out in Annex VI to Regulation

(12)

Corrections of clerical errors

(13)

Commission’s assessment

(14)

Measures having a cross-border or multi-country dimension or effect

(15)

(16)

Contribution to the green transition, including biodiversity

(17)

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(EU) 2021/241. In accordance with Article 17 of Regulation (EU) 2021/241, the

amended RRP is consistent with the information included in the National Energy and

Climate Plan 2021-2030.

(18)

The modifications to the contribution to the green transition relate to the increase in

allocation for Investment 1.4: Development of biomethane and to the corresponding

decrease in allocation of Investment 3.2: hydrogen use in hard-to-abate industry, both

under Mission 2 Component 2. In addition, the envelope for Investment 4.3 –

Installation of charging infrastructures has been decreased, and the corresponding

amount has been allocated to the new Investment 4.5 - Private and light commercial

vehicle fleet renewal program with electric vehicles, both under Mission 2 Component

2. Investment 7. Support to the production system for the Ecological Transition, Net

Zero Technologies, and competitiveness and resilience of strategic supply chains

under Mission 1 Component 2 has been merged under Investment 5.1 – Renewables

and Batteries under Mission 2 Component 2. A limited reduction to three measures

partially no longer achievable because of supply chain disruptions under Mission 3

Component 1 Investment 1.1 - High-speed railway connections to the South for

passengers, Investment 1.2 - High-speed lines in the North connecting to rest of

Europe, 1.3: Diagonal connections and freight, has been partially compensated by an

increase in the allocation of Investment 1.9 Inter-regional connections. Overall, due to

the differing climate tagging content of the increased measure and the decreased ones,

the modifications to Italy’s RRP entail a net increase in the overall contribution to the

climate target of the plan by 0.1% to 39.5% from 39.4%. The limited scope of these

amendments does not change the overall assessment of this criterion.

In accordance with Article 19(3), point (f), of and Annex V, criterion 2.6, to

Regulation (EU) 2021/241, the amended RRP contains measures that contribute to a

large extent (Rating A) to the digital transition or to addressing the challenges

resulting from it. The measures supporting digital objectives account for an amount

which represents 25.5% of the amended RRP’s total allocation calculated in

accordance with the methodology set out in Annex VII to that Regulation.

The amendments affecting measures having a digital dimension concern only a few

measures from Mission 1 Component 1. The limited scope of the amendments does

not change the overall assessment of this criterion.

In accordance with Article 19(3), point (i), of and Annex V, criterion 2.9, to

Regulation (EU) 2021/241, the justification provided in the amended RRP on the

amount of the estimated total costs of the RRP is to a medium extent (Rating B)

reasonable and plausible, is in line with the principle of cost efficiency and is

commensurate to the expected national economic and social impact.

The amount of the estimated total costs of the modified RRP is in line with the nature

and type of the envisaged reforms and investments. As a result, cost estimates for most

of the measures in the modified RRP are deemed reasonable and plausible. Italy has

provided sufficient information and evidence that the amount of the estimated total

costs is not covered by existing or planned Union financing. Finally, the estimated

total cost of the modified RRP is in line with the principle of cost-efficiency and

commensurate with the expected national economic and social impact. Therefore, a

rating B is warranted for the modified RRP.

Contribution to the digital transition

(19)

(20)

Costing

(21)

(22)

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Any other assessment criteria

(23)

The Commission considers that the amendments put forward by Italy do not affect the

positive assessment of the RRP set out in the Council Implementing Decision ST

10160/21 INIT; ST 10160/21 ADD 1 REV 2 of 13 July 2021 on the approval of the

assessment of the RRP for Italy regarding the relevance, effectiveness, efficiency and

coherence of the RRP against the assessment criteria laid down in Article 19(3), points

(a), (b), (c), (d), (da), (g), (h), (j) and (k).

Measures supporting investment operations contributing to the objectives of the Strategic

Technologies for Europe Platform (STEP)

(24)

In accordance with Article 4(4) of the Regulation (EU) 2024/795, Italy considered as a

matter of priority projects that have been awarded a Sovereignty Seal pursuant to

Article 4(1) of the Regulation (EU) 2024/795. However, Italy considered that no

project having been awarded a Sovereignty Seal was to be included in the amended

RRP, because the evaluation of the compliance of such projects with the RRF

regulation and with state aid rules is ongoing and their inclusion at this stage would be

premature, as their eligibility has not yet been fully verified.

Following the positive assessment by the Commission of the amended RRP with the

finding that the RRP satisfactorily complies with the criteria for assessment set out in

Regulation (EU) 2021/241, in accordance with Article 20(2) of and Annex V to that

Regulation, the reforms and investment projects necessary for the implementation of

the amended RRP, the relevant milestones, targets and indicators, and the amount

made available from the Union for the implementation of the amended RRP in the

form of non-repayable financial support should be set out.

The estimated total costs of Italy’s amended RRP is EUR 194 415 941 466. As the

amount of the estimated total costs of the amended RRP is higher than the updated

maximum financial contribution available for Italy, the financial contribution

determined in accordance with Article 20(4) and 21a(6) allocated for Italy amended

RRP should be equal to EUR 71 779 623 788.

The loan support made available to Italy amounting to EUR 122 601 810 400 remains

unchanged.

Council Implementing Decision ST 10160/21 INIT; ST 10160/21 ADD 1 REV 2 of 13

July 2021 on the approval of the assessment of the RRP for Italy should therefore be

mended accordingly. For the sake of clarity, the Annex to that Council Implementing

Decision should be replaced entirely,

Positive assessment

(25)

Financial contribution

(26)

Loans

(27)

(28)

HAS ADOPTED THIS DECISION:

Article 1

The Council Implementing Decision of 13 July 2021 on the approval of the assessment of the

recovery and resilience plan for Italy is amended as follows:

(1) Article 1 is replaced by the following:

“Article 1

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Approval of the assessment of the RRP

The assessment of the modified RRP of Italy on the basis of the criteria provided for in

Article 19(3) of Regulation (EU) 2021/241 is approved. The reforms and investment projects

under the RRP, the arrangements and timetable for the monitoring and implementation of the

RRP, including the relevant milestones and targets and the additional milestones and targets

related to the payment of non-repayable financial support, the relevant indicators relating to

the fulfilment of the envisaged milestones and targets, and the arrangements for providing full

access by the Commission to the underlying relevant data are set out in the Annex to this

Decision.”;

(2) the Annex is replaced by the text in the Annex to this Decision:

Article 2

Addressee

This Decision is addressed to Italian Republic.

Done at Brussels,

For the Council

The President