Uno dei temi su cui il Piano Nazionale di Ripresa e Resilienza (PNRR) pone maggiormente l’enfasi è quello della ricerca, considerata un volano “per lo sviluppo di una economia ad alta intensità di conoscenza, di competitività e di resilienza” (p. 171). Belle parole, che tuttavia, ad un’accorta disamina del PNRR, nonché ad una critica considerazione del perimetro entro cui gli interventi si svilupperanno, nascondono delle pericolose insidie. Tanto per cominciare, il passaggio appena riportato prosegue con un attacco frontale allo status quo dell’apparato formativo italiano, specificando che le azioni del PNRR dovranno partire “dal riconoscimento delle criticità del nostro sistema di istruzione, formazione e ricerca”. Tra questi problemi, vengono elencate questioni di sacrosanta rilevanza per il nostro Paese, tra cui gli alti tassi di abbandono e gli importanti divari territoriali in termini di istruzione, ma anche rischiosi concetti come il presunto mismatch tra la domanda e l’offerta di lavoro e una ‘limitata integrazione’ dei risultati della ricerca nel sistema produttivo.
Proviamo ad eviscerare i contenuti del PNRR nel campo della ricerca e dell’istruzione, partendo da una doverosa premessa sull’entità e sul funzionamento del Piano stesso.
Il PNRR dentro la cornice dell’Unione Europea: pochi soldi e tanta condizionalità
Mentre la stampa continua a raccontarci che un fiume di denaro, per fortuna gestito dai competenti del governo Draghi, sta invadendo il nostro Paese e ci permetterà di uscire da questa catastrofe con poche ferite, ad un’attenta lettura le cifre si rivelano purtroppo del tutto inadeguate alla portata della crisi.
Si tratta, in larga parte, di prestiti e risorse che finanzieranno progetti già in programma e in bilancio. Per la realizzazione del PNRR, l’Italia potrà attingere dal Next Generation EU (la cui più ampia componente è il Recovery Fund) risorse pari a 205 miliardi di euro. Per avere un termine di paragone, ci basta pensare che il programma finanzierà in sei anni investimenti per un importo minore di quanto già speso dal Governo italiano nei primi 15 mesi di emergenza (circa 210 miliardi). Escludendo i prestiti e conteggiando la quota che l’Italia versa per la partecipazione al bilancio europeo, le risorse aggiuntive messe a disposizione dall’Europa non superano i 50 miliardi divisi su sei anni. Detto in altri termini, gran parte del PNRR sarà finanziato, prima o poi, con risorse nazionali, sotto lo sguardo della Commissione che, come vedremo in seguito, vigilerà sui deficit eccessivi.
Ma c’è di più. Oltre a trattarsi di pochi spicci, c’è una parola, un concetto che meglio di ogni altro descrive il funzionamento di questo programma: la condizionalità. È un principio che torna e riemerge ad ogni occasione, e che ci permette di contrastare la favola dell’Europa solidale. Condizionalità vuol dire che ogni euro concesso è subordinato all’adempimento di una serie di obblighi, all’attuazione di riforme stabilite dalle istituzioni europee e all’adesione al progetto politico dell’austerità, in maniera tale che a fronte dell’euro ricevuto oggi si paghi un prezzo, politico ed economico, ben più caro nei prossimi anni in termini di ulteriore rigore fiscale.
Iniziamo dalle riforme. Con il PNRR, l’Italia si è impegnata ad effettuare, oltre a 132 specifici progetti d’investimento, ben 58 riforme. La Presidente della Commissione europea Von der Leyen ha ricordato in più occasioni che i fondi verranno erogati in tranche su base semestrale, e che le istituzioni europee vigileranno su questo cammino ed avranno facoltà di interrompere l’erogazione dei fondi qualora il Paese devii dalla retta via. Ce lo ha rammentato, di recente, anche il ministro Brunetta, che ha definito il PNRR come un contratto: soldi (pochi) in cambio di riforme. Se, fino ad oggi, il PNRR ha raccolto i favori dell’Unione europea, è proprio perché le principali linee di intervento messe in programma dal Governo Draghi coincidono esattamente con le priorità delle istituzioni europee. Tra queste:
1. Enfasi assoluta sulle politiche attive del lavoro, cioè quelle misure imbevute della retorica secondo la quale la ‘colpa’ della disoccupazione è del disoccupato stesso, reo di non essere abbastanza appetibile per il padrone. Una visione favolistica del mercato del lavoro che ci racconta di imprenditori che desidererebbero enormemente assumere, ma sono frenati dalla qualità scadente dei lavoratori disponibili e dal non allineamento tra le loro esigenze produttive e le ‘skills’ (le competenze) di chi cerca un lavoro. Tutto questo in barba alla realtà dei fatti, che ci ricordano che, a fronte di 2,5 milioni di disoccupati e di altrettante persone inattive causa scoraggiamento o motivi simili, i posti vacanti (cioè i lavori disponibili e che aspettano di essere occupati) sono solo 350 mila.
2. Mano libera al mercato, nella convinzione che quest’ultimo sappia, in autonomia, generare al contempo benefici per tutti ed efficienza. Si scopre infatti che fare il padrone in Italia è un’attività faticosa e gravata da miriadi di noiosi impedimenti burocratici. Ecco allora la necessità di riforme sostanziali per migliorare il contesto imprenditoriale e ridurre gli ostacoli alla concorrenza. E non si tratta semplicemente di un pronunciamento generale, imbevuto di ideologia neoliberista: le misure da prendere, ossia le scelte di politica economica sulle quali il Governo Draghi si è impegnato sotto l’occhio benevolo delle istituzioni europee, prevedono il potenziamento di processi competitivi per l’aggiudicazione dei contratti di servizi pubblici locali, in particolare per quanto riguarda la gestione dei rifiuti, i trasporti (porti, ferrovie regionali e trasporto pubblico locale) e le concessioni (autostrade, stazioni di ricarica per la mobilità elettrica ed energia idroelettrica). Tradotto in parole povere: bisognerà eliminare ogni residua gestione pubblica fuori dalle dinamiche del mercato e della concorrenza nei servizi pubblici già da anni intensamente logorati da riforme liberiste che ne hanno snaturato la funzione.
3. Il ritorno della famigerata spending review, cioè tagli feroci alla spesa pubblica presentati come misure volte a migliorarne l’efficienza. Con questo terzo punto, passiamo infatti all’altra faccia della condizionalità. In maniera emblematica, il documento preparato dalla Commissione europea in vista dell’approvazione finale (da parte del Consiglio Europeo) del PNRR italiano, parte con una prolungata invettiva contro l’elevato indebitamento pubblico italiano. Mentre l’attenzione pubblica è catturata dalla propaganda mediatica, le istituzioni europee lanciano segnali inequivocabili su quella che sarà la gestione delle finanze pubbliche nel post-pandemia: esattamente la stessa di prima, con il ritorno a spron battuto di una rigida applicazione del progetto politico dell’austerità. Lo stesso Commissario all’economia Gentiloni ha lanciato un monito severo: i tempi della flessibilità stanno per finire e il Patto di Stabilità tornerà in vigore dal 2023. Il ritorno del Patto di stabilità e della disciplina di bilancio significano, infatti, che dovremo rinunciare a pensioni, istruzione, sanità e stato sociale in misura sempre crescente, già a partire dal futuro immediato. La disciplina di bilancio che ci aspetta sarà peraltro peggiore di quella sperimentata in passato, per via dei particolari vincoli che il Recovery Fund porta con sé. Assistiamo, infatti, a un salto di qualità nella somministrazione dell’austerità. Tra le varie condizioni che i Paesi sono chiamati a rispettare per ricevere le tranche di aiuti europei c’è, infatti, l’impegno a correggere i ‘disavanzi eccessivi’. Questo significa, oltre ogni ragionevole dubbio, che i soldi del Recovery Fund saranno concessi solo in cambio di somministrazione di austerità a dosi da cavallo.
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Poche risorse per la ricerca, molti aiuti alle imprese
In questo quadro a tinte fosche, come si inserisce nel PNRR la spesa in ricerca? Iniziamo col dire che i soldi destinati alla Missione 4 “Istruzione e Ricerca” sono meno di 33 miliardi da spalmare su più anni di quei presunti 205 miliardi di cui abbiamo già parlato (molti di meno, in realtà), ossia circa il 16% delle risorse. L’Italia, che è tristemente il fanalino di coda in Europa in quanto a spesa pubblica in istruzione e ricerca in rapporto al PIL (circa 1,5%, di cui 1% in istruzione e 0,5% in ricerca), spende ogni anno circa 27 miliardi. Per la ricerca pubblica, in particolare, l’Italia spende circa 9 miliardi all’anno, di cui 6 alla ricerca di base e 3 alla ricerca applicata. Alla ricerca ne giungono 11,44 dal Next Generation Eu (sostanzialmente la stessa cifra prevista dalla prima bozza del PNRR preparata dal Governo Conte-2 a gennaio 2021), da spendere nell’arco di 6 anni: significa meno di 2 miliardi l’anno. È poco più di una elemosina, presentata invece come una vera e propria occasione da non perdere per trasformare questo presunto malato terminale, quale è la ricerca pubblica in Italia, in un prodigio in grado di proiettare il Paese nel futuro. Scompare del tutto l’idea di inserire nel PNRR il cosiddetto Piano Amaldi, che prevedeva originariamente di far raggiungere all’Italia i livelli di finanziamento alla ricerca pubblica della Germania, che investe l’1% del proprio PIL, accontentandosi di un più modesto 0,75%. Per raggiungere questa soglia, come spiega lo stesso Amaldi, occorrerebbero cifre ben più alte, “10 miliardi nel 2021, 11 nel 2022, 12 nel 2023, e così via fino a 14 miliardi nel 2025”. Nel Piano presentato prima dal governo Conte-bis e poi, sostanzialmente identico per quanto riguarda la ricerca, dal governo Draghi, c’è meno del 40% di questi fondi, circa 5 miliardi. Dietro la propaganda, come al solito, resta poco o nulla.
Occorre inoltre analizzare la composizione di un sottoinsieme di queste risorse, pari a 6,91 miliardi, destinati alla voce “Rafforzamento della ricerca (etc.)”. Di questi, soltanto 1,8 miliardi vengono allocati al PNR (Programma Nazionale per la Ricerca) e al PRIN (Progetti di rilevante interesse nazionale), due dei principali strumenti di programmazione della spesa in ricerca. Altri 4,5 miliardi sono invece distribuiti tra: i) partenariati tra università, centri di ricerca e imprese (1,61 miliardi); ii) potenziamento strutture di ricerca e “campioni nazionali di R&D (1,60 miliardi); iii) creazione e rafforzamento di “ecosistemi dell’innovazione”, costruzione di “leader territoriali di R&S (1,30 miliardi). Un surreale panegirico per dire che più di due terzi dello stanziamento andranno principalmente alle imprese che, tanto per esser chiari, non li utilizzeranno per fare ricerca. Al contempo, i fondi destinati esclusivamente alle Università ed agli Enti Pubblici di Ricerca per la ricerca di base ammontano a 2,3 miliardi di euro, confermando la scelta nella stesura del PNRR di privilegiare le attività di ricerca applicata e i potenziamenti infrastrutturali.
Infine, è opportuno precisare che una parte rilevante degli 11,4 miliardi messi sul fronte ricerca dal Next Generation è destinata al cosiddetto “trasferimento tecnologico”. Si tratta di un insieme di attività che mira a trasferire la conoscenza (tecnologia, competenze, metodi di fabbricazione, campioni di produzione e servizi) dal mondo della ricerca scientifica al mercato – e al “potenziamento delle condizioni di supporto alla ricerca e all’innovazione”. Ci sono (addirittura!) 600 milioni per il finanziamento di dottorati innovativi che rispondono ai fabbisogni di innovazione delle imprese e promuovono l’assunzione di ricercatori nelle imprese. Non a caso, infatti, la relativa voce del PNRR prende il nome di “Dalla ricerca all’impresa”.
In definitiva, sul fronte della ricerca il PNRR ci racconta una storia, l’ennesima, fatta di poche risorse e messe principalmente al servizio delle imprese. Nessun cenno alla stabilizzazione dei precari, che non rientrano minimamente tra le priorità del PNRR, e che continueranno a tappare i buchi di un sistema strutturalmente sottodimensionato con contrattini temporanei di didattica e ricerca. Nessuna attenzione all’annosa questione dell’accesso allo studio per chi viene da famiglie non benestanti. Nessuna parola spesa sul sottodimensionamento del corpo docente nell’istruzione secondaria e sulle classi pollaio. Quei pochi soldi destinati dal PNRR al mondo della ricerca sono perfettamente coerenti con l’orientamento generale del Piano: finanziamenti del tutto insufficienti, che finiscono per lasciare il mondo dell’istruzione media e superiore nelle condizioni attuali, e quello della ricerca intrappolato nella precarietà e nei progetti di breve-medio termine che devono strizzare l’occhiolino agli appetiti delle imprese.
Per invertire la rotta, occorre rimettere al centro dell’agenda politica la ricerca pubblica, sia di base che applicata, e lasciare che scuola e Università rappresentino innanzitutto una possibilità per studenti e ricercatori di crescere dal punto di vista personale e sociale. Si tratta di obiettivi che abbisognano di molte più risorse di quelle previste nel PNRR, nonché di emanciparsi dai vincoli di spesa previsti dalle regole europee. Istruzione e ricerca dovrebbero avere degli obiettivi ben diversi dal servizio di manodopera formata alle imprese, perché la battaglia contro lo sfruttamento si combatte anche nella scuola e nelle Università, e parte da un’idea di istruzione libera, pubblica e accessibile a tutti. Un’idea diametralmente opposta da quella sottesa agli interventi del PNRR firmato Draghi.
Tratto da: L’Antidiplomatico
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