{"id":5385,"date":"2024-11-22T09:30:57","date_gmt":"2024-11-22T08:30:57","guid":{"rendered":"https:\/\/www.rivistaeco.com\/?p=5385"},"modified":"2024-11-22T09:30:57","modified_gmt":"2024-11-22T08:30:57","slug":"all-the-delays-of-the-pnrr-on-education","status":"publish","type":"post","link":"https:\/\/www.rivistaeco.com\/en\/2024\/11\/22\/all-the-delays-of-the-pnrr-on-education\/","title":{"rendered":"All the Delays of the PNRR on Education"},"content":{"rendered":"

Of the six reforms planned under the PNRR for schools and early childhood services, the most important\u2014related to teacher training and careers\u2014is disappointing. The other five are still being defined. Less than a third of the allocated resources have been spent, with significant delays in investments for structural interventions. Meeting the 2026 deadlines seems like an impossible mission.<\/span><\/i><\/p>\n

The Recovery and Resilience Plan (PNRR) represents a unique opportunity for Italy’s education system, spanning early childhood services, schools, and universities. The planned investments\u2014representing a tenth of the entire plan\u2014and the reforms agreed with the European Union are, at least in intention, key to expanding access to educational services for the youngest, improving school learning outcomes in international comparisons, and increasing the percentage of young graduates toward the European average. However, there are doubts about Italy’s ability to effectively implement the agreed-upon reforms and funded interventions, spending all the available resources within the established timeframe by 2026.<\/span><\/p>\n

The Draghi government agreed on the PNRR with the European Commission in July 2021. By the end of 2023, the Meloni government renegotiated it, making several modifications to the original goals, mainly due to increased costs caused by rising raw material prices (affecting 18% of the original targets) or because 40% of the initial goals were clearly unattainable. Following the revisions, the total PNRR investment in education (almost all concentrated in Mission 4) stands at \u20ac20.09 billion, slightly down from the original formulation, mainly due to the reduction in the number of new childcare places. The reforms related to schools and universities remain at ten. In this article, we examine both the reform and investment components, focusing only on early childhood services and schools.<\/span><\/p>\n

The Six PNRR Reforms for Schools<\/b><\/h3>\n

A necessary condition for receiving PNRR investment resources is the introduction of the structural reforms agreed upon with the EU. The correct idea is that increasing resources without improving the efficiency and effectiveness of spending mechanisms leads to a waste of public money. Implementing the reforms is therefore essential to achieving milestones, and if they are not met within the expected timeframe, the European Commission can suspend quarterly payments, as happened with the third payment in 2023 when Italy failed to meet its goal for constructing new student housing.<\/span><\/p>\n

For schools, the PNRR includes six regulatory reforms (another four are related to universities, which we will not cover): teacher recruitment, initial training, in-service training, and career progression; school system organisation; orientation; technical and vocational institutes; higher technological institutes; and the High Training School.<\/span><\/p>\n

The reform of the school system organisation introduces new criteria for resizing school institutions and reducing class sizes to adapt to the demographic decline in the student population. So far, the government has defined new school mergers, which have raised concerns both in the southern regions, where the impact is greatest, and among school leaders.<\/span><\/p>\n

The reform of orientation aims to help students make informed choices about study and career paths. The Ministry has issued two decrees that define guidelines, including 30-hour annual orientation modules in secondary schools, and has introduced the roles of tutors and career advisors in upper secondary schools. However\u2014and this is a significant oversight\u2014lower secondary schools are excluded, even though good orientation is even more necessary at this stage to make informed choices for upper secondary school, preventing dropouts and educational disengagement.<\/span><\/p>\n

As for technical and vocational institutes, the goal is to strengthen their connections to the socio-economic and productive fabric of their regions. For technical institutes, curriculum revisions are planned with mechanisms to ensure continuity with tertiary education in technological sectors. For vocational institutes, the reform seeks alignment with regional vocational education and training programs and the development of skills linked to innovation and sustainability. Both technical and vocational institutes will be part of an experiment offering four-year programs that align with ITS Academies, a law that passed at the end of July 2024.<\/span><\/p>\n

The reform of higher technological institutes aims to strengthen the tertiary professional training offering. ITS Academies offer two-year courses with the possibility of extending to a third year to obtain a degree. The reform also includes measures to raise awareness among young people and families about these programs, with the goal of increasing enrolment, which is currently far below the level of similar institutions in other European countries.<\/span><\/p>\n

The High Training School, the only one of the six reforms to receive PNRR funding (\u20ac34 million), was created to guide the professional and career development of school staff. Today, it has been incorporated into the Ministry of Education as a specific department.<\/span><\/p>\n

Teacher Career and In-Service Training<\/b><\/h3>\n

Of these reforms, the most important is undoubtedly the first, which aims to improve teacher quality, especially in pedagogy, through new mechanisms for initial and in-service training, hiring, and career progression. The new rules on hiring and initial training are discussed in this issue of <\/span>Eco<\/span><\/i> in the article by Carlo Cappa, Andrea Gavosto, and Marco Gioannini, which explains how the innovations provided for in the law have been significantly weakened by the Meloni government’s implementation decrees. Therefore, here we focus only on in-service training and teacher careers.<\/span><\/p>\n

In its original version, the reform contained in the Draghi government’s Law 79\/2022 introduced promising changes in teacher hiring and initial training. However, it was weak from the start on career progression and in-service training. The law created economic and professional incentives for teachers, but these were not adequate to promote teaching quality.<\/span><\/p>\n

International comparisons confirm that Italian teachers’ salaries are low: adjusted for purchasing power, the average gross salary in upper secondary schools in 2022 was \u20ac33,000 per year, compared to \u20ac75,000 in Germany, \u20ac67,000 in the Netherlands, and \u20ac45,000 in France. Under these conditions, it is impossible for schools to attract the best graduates. But even more than the average salary level, the limited salary progression throughout a teacher’s career sets Italy apart from other countries: over 35 years, an Italian teacher’s salary increases by just 48%, while in France, where starting salaries are slightly higher, it grows by 65%. In Italy, salary increases are tied only to years of service, with no increments based on skills, effort, or willingness to take on organisational responsibilities.<\/span><\/p>\n

In many other European countries (including France, the United Kingdom, Sweden, and Poland, whose school systems have improved significantly in recent years), teachers can progress through roles, responsibilities, and salaries, usually requiring significant professional development and periodic evaluations of their work quality. The lack of financial recognition is a powerful disincentive for those with career ambitions in education and does not help improve teaching quality.<\/span><\/p>\n

Another weak point is in-service training. In fact, Italian teachers are not required to periodically update their subject and pedagogical knowledge. Those who do so do it out of personal responsibility. In Europe, there are two main models of in-service training: mandatory for all teachers, requiring the accumulation of a certain number of annual credits, with job loss as a penalty for non-compliance; and incentivised, offering salary increases or career progression to those who pursue training. The PNRR and Law 79 opted for the second model but implemented it in a questionable way. The law provides for three three-year training cycles, at the end of which teachers who complete the courses (though the criteria for success are not defined) receive a one-time increase established through collective bargaining. Only after three cycles, or nearly ten years, does the increase become permanent, amounting to \u20ac5,600 per year. In summary, the incentive is too long, too uncertain, and too modest to induce a significant number of teachers to pursue training.<\/span><\/p>\n

Another weakness of the law is that it avoids addressing\u2014contrary to PNRR goals\u2014the issue of teacher careers. Even in the original version of the Draghi government’s law, career progression was mentioned only in connection with the convoluted incentivised in-service training mechanism. And now, under the Meloni government, the issue is still largely ignored: it is difficult to see Minister Valditara’s decision to create 40,000 tutor and career advisor roles with higher pay as a substantial step toward creating a teacher career structure.<\/span><\/p>\n

In general, while formal obligations to the European Commission (laws, implementation decrees, and other measures) have been met, the same cannot be said for the spirit of the main reforms, such as recruitment, training, orientation, and system organisation. In many cases, the final content is far from the original premises of the PNRR.<\/span><\/p>\n

PNRR Investments in Early Childhood and Schools<\/b><\/h3>\n

As for the investment component of the PNRR in education, spending continues to proceed slowly, in line with the overall progress of the plan. As of July 2024, less than two years before the final deadline for most programs set for mid-2026, less than 25% of the \u20ac20 billion allocated for education measures had been spent (it was about 17% in December 2023, as reported in the IV Report), in line with 26.4% of the entire PNRR. For early childhood and school measures (excluding universities) overseen by the Ministry of Education and Merit, spending is slightly above 26% of the allocations.<\/span><\/p>\n

Some projects are particularly delayed. Only 16.6% of the funds allocated for the extraordinary intervention to reduce territorial disparities have been spent, and even less\u20149.5%\u2014has been spent on the full-time school extension plan. The financial progress of two flagship PNRR programs in the education sector is somewhat better: the school building replacement plan (with \u20ac1 billion disbursed at 19%) and the nursery and early childhood education plan (with \u20ac3.2 billion spent at 25%).<\/span><\/p>\n

Specifically, the new schools plan aims to replace obsolete school buildings with modern, innovative structures that promote learning environments that are sustainable, safe, and inclusive. To date, all public contracts for the construction of new schools have been signed. However, it is unclear what resources have been allocated for each project, and it remains uncertain whether the work will be completed within the tight deadlines imposed by the plan, with the goal of delivering 166 new structures covering 400,000 square meters by March 2026.<\/span><\/p>\n

The Nursery School Issue<\/b><\/h3>\n

The most troubled aspect is the infrastructural enhancement of early childhood services, particularly nurseries. In the comprehensive review of the plan in December, the target for this measure was reduced (from 264,000 new places to 150,000), the deadline for their availability was extended (from late 2025 to mid-2026), and around \u20ac1.3 billion in funding was cut due to non-compliance with European Commission requirements. Even before the review, the process of selecting municipalities to implement the projects had proven difficult: the allocation of resources occurred through repeatedly reopened tenders, challenging municipalities that were less technically and administratively prepared and less inclined to seize the opportunity to increase the provision of early childhood services (typically those in some southern areas). For this first phase of allocations, there is a lack of detailed information on each project’s allocated resources, spending to date, additional places created, and their territorial distribution\u2014a critical omission in a sector where inequality is severe. However, it seems that most of the contracts for the first batch of projects have been awarded.<\/span><\/p>\n

In April 2024, the government launched a New Nursery Plan (\u20ac730 million, almost half of which is funded by the PNRR) to create additional places aimed at fulfilling the target of 150,000 places outlined in the plan. In this second phase, a different approach was taken, with resources being allocated \u201cfrom above\u201d by directly identifying the municipalities most in need of funding. Local governments now only need to decide whether or not to accept the proposal. For the approximately 31,600 additional nursery places financed in this way, tenders for the construction work must be launched quickly, followed by the actual building of the facilities and the delivery of the places. All this must be completed in less than 24 months.<\/span><\/p>\n

In conclusion, despite Minister Valditara\u2019s occasional reminders that some PNRR spending has not yet been officially reported, there is no doubt that delays in many PNRR investment lines for schools and early childhood services are concerning. Halfway through the process, we are far from having spent even a third of the allocated resources. This is especially true for investments requiring long-term structural interventions, such as the construction or renovation of buildings. The risk of missing the final deadline is real.<\/span><\/p>\n

Additionally, beyond the formal obligations to the EU, the first and most important of the six PNRR reforms for schools has fallen short of expectations and commitments, while the others remain in an undefined limbo (with the possible exception of the two reforms related to technical and vocational education). The overall picture of the plan\u2019s implementation in education is far from the optimistic portrayal often given by the government.<\/span><\/p>\n

Bio<\/span><\/em><\/p>\n

Andrea Gavosto is the director of the Agnelli Foundation, where he conducts research in the field of education.<\/span><\/em><\/p>\n

Marco Gioannini is the head of communications and school programs at the Agnelli Foundation.<\/span>
\n<\/span><\/em><\/p>\n

Alberto Zanardi is a professor of public finance at the University of Bologna and a former member of the Parliamentary Budget Office Council.<\/span><\/em><\/p>\n","protected":false},"excerpt":{"rendered":"

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