Fiscalità di vantaggio per il Mezzogiorno, attrazione degli investimenti produttivi dall’estero, rilancio di reti e distretti d’imprese e zone a burocrazia zero. Sono questi i meccanismi operativi coi quali la manovra d’estate ha dichiarato le intenzioni di dare una scossa all’asfittica situazione economica del paese. In particolare, per favorire la crescita dei territori nazionali in maggiore ritardo di sviluppo, il dispositivo dell’articolo 40 del Dl (in materia di fiscalità di vantaggio) prova a concentrare l’essenza di un dibattito aperto ormai da diversi anni e che aveva avuto, anche in Italia, un particolare sussulto a seguito della Cd “Sentenza Azzorre” (6 settembre 2006 – causa C88/03). In quel caso, la Corte di Giustizia delle Comunità Europee aveva operato una decisa svolta in materia di compatibilità con Trattato Ue degli aiuti fiscali operati in chiave “federalista”, introducendo l’importante distinzione tra sistemi fiscali caratterizzati da autonomia istituzionale, procedurale e finanziaria e quelli sprovvisti di tali caratteri.
Per i Giudici di Lussemburgo, nei casi in cui fosse stato possibile identificare un sistema del primo tipo, anche all’interno di un singolo stato membro e su un territorio parziale del medesimo, vi sarebbe stata la possibilità di introdurre forme di fiscalità di vantaggio. Il pronunciamento (successivamente confermato da analoga giurisprudenza) consentiva – per la prima volta – di avere dei riferimenti tecnici precisi per progettare forme consentite di tale politica economica: ogni volta che un soggetto istituzionale diverso dallo stato centrale (in Italia, ad esempio, le regioni) avesse stabilito regole di particolare favore fiscale per alcune categorie di soggetti o operazioni (ma sempre agendo solo su tributi propri) non si sarebbero venuti a creare aiuti di stato, poiché non sarebbe stato l’intero territorio del Paese a dovere essere considerato per l’accertamento della “selettività” dell’intervento.
Sulla scia del citato pronunciamento UE, il DL n. 78 stabilisce che le regioni Abruzzo, Basilicata, Calabria, Campania, Molise, Puglia, Sardegna e Sicilia possano, con propria legge, modificare le aliquote dell’Imposta regionale sulle attività produttive, fino al punto di azzerarle, per le nuove iniziative produttive. Prevista anche la possibilità di introdurre specifiche esenzioni, detrazioni e deduzioni, sempre in materia di IRAP e sempre nei riguardi delle nuove iniziative economiche.
Il provvedimento, oltre che essere già “ammissibile” dalla menzionata giurisprudenza Ue, è anche pienamente coerente col contesto normativo fissato dall’articolo 8 della legge delega n. 80/2003 (Delega al Governo per la riforma del sistema fiscale statale), secondo cui bisogna dare attuazione ad una “graduale eliminazione dell’Irap con prioritaria e progressiva esclusione dalla base imponibile del costo del lavoro”. Proprio in anticipazione della riforma federalista – e per la particolarità della situazione economica del Sud – il governo conferisce questa più ampia manovrabilità della leva fiscale alle regioni del Mezzogiorno. Queste dovranno, però, fare i conti coi pesanti deficit presenti in quasi tutti i loro bilanci per poter dare concretamente attuazione alla manovra, che necessiterà – comunque – di ulteriori passaggi normativi e regolamentari, a livello locale e nazionale, per la sua piena attuazione.
Di applicazione ancora più difficile si presenta la norma contenuta nel successivo articolo 41 della manovra, dove si introduce un istituto assolutamente innovativo per il nostro ordinamento fiscale. Si tratta del Cd “Regime fiscale di attrazione europea”, termine col quale il Governo ha definito la possibilità – per le imprese residenti in uno Stato membro dell’Unione Europea diverso dall’Italia che intendano avviare nel nostro Paese una nuova attività economica – di “importare” per quest’ultima il regime fiscale del Paese Ue più conveniente in assoluto. Questa possibilità (applicazione del regime fiscale più favorevole) viene estesa non solo a tale nuova attività produttiva ma anche ai dipendenti e ai collaboratori della medesima, il tutto per eliminare eventuali deficit localizzativi per chi dovesse decidere, in libertà, dove avviare un’attività economica nuova in ambito UE.
A ben guardare, non è chiaro quando (e se) tale disposizione potrà trovare concreta attuazione, atteso che il provvedimento si limita a stabilire solo l’obbligo della procedura di cui all’articolo 8 del Dl n. 269/03 (Ruling internazionale) e la necessità di un successivo decreto del Ministero dell’economia per stabilire le necessarie disposizioni attuative.
Continuando, infine, in questa “implementazione progressiva” delle politiche di sostegno alla crescita, la manovra attribuisce al Direttore dell’Agenzia delle entrate la facoltà di individuare le condizioni per il riscontro dei requisiti per l’esistenza di una “rete d’impresa”, ovvero l’istituto giuridico introdotto con l’articolo 3, comma 4-ter e seguenti, del Dl n. 5/09, ad oggi inattuato, al pari del similare istituto dei “distretti produttivi”. Grandi aspettative furono riposte, col varo finanziaria del 2006, proprio sui “distretti”, cui le “reti” sono state normativamente equiparate nel 2009. Ciò nonostante, il lavoro avviato dalla Commissione ministeriale, insediata a seguito del primo provvedimento del 2006, non è stato mai portato a compimento, relegando “reti” e “distretti” al ruolo di ideale più che di realtà giuridicamente cogente. Ad oggi, dunque, ancora non si ha concretamente idea di come si possa realizzare il cosiddetto “consolidato di distretto” che, al pari di quello applicabile alle “reti”, promette di valorizzare le perdite fiscali tra le imprese aderenti. Probabilmente, non molto cambierà a breve, anche se il Dl 78 demanda al Dicastero di via XX Settembre l’onere di emanare – con proprio decreto – disposizioni specifiche per le “reti” entro 45 giorni dal 31 maggio scorso. 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