Italy was one of the first Countries to impose a lockdown to cope with the spread of Covid-19. Today, with Phase 2 in full swing we can retrace the Coronavirus milestones in order to take stock of ‘who did what and why’.

1. COVID-19.
THE KEY INSTITUTIONS
IN THE PANDEMIC
May 2020

2. Coronavirus Emergency: Italy locks down
9 march 2020. Prime Minister Conte announces that Italy is being put under lockdown: the Country closes down
except for essential services. Movement is restricted except for reasons relating to work, health or necessity.
We are aware of how difficult it is to change our habits. But unfortunately, there is no time.
[…] We all have to give something up for the good of Italy, and we have to do it now.
We will be adopting stricter measures to contain to the extent possible the spread of the
Coronavirus and to safeguard the health of all citizens.
The Government adopts the #IoRestoaCasa (#I’mStayingatHome) Decree, in force starting on 10 March,
extending some measures adopted for the so-called red zones to all of Italy, as well as a series of additional
measures ‘adequate and proportionate to safeguard the health of citizens, to contain the spread of contagion’.
“

3. Italy was one of the first Countries to impose a lockdown
to cope with the spread of Covid-19.
Before and after lockdown:
Who decided what?
Today, with Phase 2 in full swing – the phase where
Italians attempt to live with the virus – we can retrace
the Coronavirus milestones by looking at the Institutions
and stakeholders that played a key role in order to take
stock of ‘who did what and why’.

4. The Ministry of Health
The first to tackle Covid-19 is the Ministry of Health. At the beginning
of January, when the risk of infection was still considered ‘moderate’,
it begins monitoring the state of health of people coming from the
Chinese city of Wuhan. The first measures taken were aimed at
airports, specifically requiring passengers to be checked using
thermal scanners.
30 January 2020
The Ministry issued an Ordinance suspending air traffic to and from
China. Flights coming from China were rerouted to only two airports
(Roma Fiumicino and Milano Malpensa) and monitoring of the state of
health of all passengers on direct flights from China and Hong Kong
was required. The Ministry also prepared an emergency procedure to
be implemented in the event of suspected cases of Coronavirus
The WHO was still speaking in terms of an epidemic, which is
(perhaps) why the ‘National Plan for Preparedness and Response to
an Influenza Pandemic’, which Italy had drawn up back in 2006, was
not consulted.

5. C
30 january 2020
The first two cases of Coronavirus in Italy, a couple of Chinese
tourists, are hospitalised and isolated at the National Institute of
Infectious Diseases ‘Lazzaro Spallanzani’ (INMI). This is the main
centre in Italy for research and treatment of infectious disease
and a WHO Collaborating Centre for highly contagious diseases.
A few days later, the INMI’s virology lab isolates the virus (called
2019-nCoV/Italy-INMI), enabling it to be studied, understood and
to better verify what can be done to stop it from spreading.
INMI Scientific Director, Dr. Giuseppe Ippolito, is a member of the
Technical-scientific Committee created to support the Head of the
Department of Civil Protection in order to overcome the emergency
caused by the Covid-19 epidemic.
TheSpallanzaniInstitute

6. TheNationalInstituteofHealth
The National Institute of Health (ISS) is the main centre for
research, control and technical-scientific consulting on
public health issues in Italy.
Since the beginning of the pandemic, it has periodically
published a series of technical reports to provide
recommendations, mainly for those working in the
healthcare sector.
Starting on 28 February, the ISS begins coordinating a
Covid-19 surveillance system integrating microbiological
and epidemiological data provided by the Regions and by the
National Laboratory of the ISS.
What is more, every day it prepares an infographic for people
outside the scientific community illustrating – using graphics,
maps and tables – the spread of the Covid-19 epidemic in
Italy and the characteristics of the people infected.

7. ISS President, Prof. Silvio Brusaferro, is a member of the Technical-scientific committee that provides
support to the Head of the Department of Civil Protection in activities aimed at overcoming the emergency
caused by the Covid-19 epidemic.
Likewise, former ISS President Walter Ricciardi, currently the Italian member of the WHO Executive Committee,
is the Advisor to Minister of Health Roberto Speranza for coordination with international healthcare institutes.
The Presidents of the ISS

8. The Council of Ministers
The Council of Ministers declares a State of National Emergency.
From this moment on, the measures to tackle the crisis are
coordinated by the Head of the Department of Civil Protection,
Angelo Borrelli, who is responsible for:
• providing aid and assistance to people who have been infected;
• tightening controls in airports and at ports;
• helping citizens currently in Countries at risk to return to Italy
and foreign citizens who are exposed to risk to return to their
country of origin.
31 JANUARY 2020
Angelo Borrelli was never appointed Commissioner for
the emergency, a fact that is not clear to everybody to date.

9. This Body comes into play whenever action needs to be taken to
The National Operational Committee initially came up with the first measures to contain contagion,
mainly regarding the control of air and sea traffic.
The Department of Civil Protection
“
prevent risks, provide aid and assistance to populations struck by calamity,
combat and overcome emergencies.

10. C
The first important measure is the 3 February Ordinance of the
Department Head, whereby the ‘first urgent interventions’ were
adopted and 5 million euros were earmarked. Numerous others
followed, but the Civil Protection was one of the main players on
the frontlines against the Coronavirus, also regarding one other
(unexpected) aspect: communication.
Civil Protection: Ordinances
and Maps
In fact, since 23 February every day it has provided citizens with
updates on the ‘state of contagion in Italy’.
Through regular press conferences, the publication of bulletins
and interactive maps, people have been able to follow the
evolution of the pandemic and receive ongoing updates on the
measures put in place to tackle it (from the supply of ventilators in
hospital facilities to the distribution of masks, etc.)

11. TheExtraordinaryCommissioner
Over these last months, Arcuri has signed a series of
Ordinances to:
• provide equipment for intensive and sub-intensive
care units;
• cap prices for masks;
• ensure that serological testing may be carried out;
• plan the proper functioning of the Immuni App.
Decree-Law no. 18/2020, the so-called #CuraItalia
(#HealingItaly) decree, appoints Domenico Arcuri, CEO of
Invitalia, as Extraordinary Commissioner for the Covid-19
emergency. Along with the Head of Civil Protection, it is his
job to plan and organise activities to tackle the emergency
by identifying basic needs (in terms of human and
instrumental resources) and proceeding to purchase and
distribute medicine, equipment and medical and individual
protection devices.
The Commissioner can:
• strengthen hospital facilities;
• build new facilities and/or convert existing properties;
• provide aid to tackle the emergency.
ANDITSORDINANCES

12. The Decree-Laws of the Council of Ministers
The Council of Ministers has adopted a number of Decree-Laws. The most important being:
#IoRestoaCasa Decree-Law
on measures to strengthen the National
Healthcare Service and provide economic
support to families, workers and businesses,
specifically:
• € 600 in March for those with registered
VAT numbers, seasonal workers, agricultural
workers and people employed in the
entertainment industry;
• temporary lay-off pay;
• special parental leave;
• teleworking;
• suspended payment of
mortgages and rents.
#CuraItalia Decree-Law
17
MARCH
2020
23
FEBRUARY
2020
including measures to contain and
manage the emergency caused by the
epidemic for the so-called ‘red zones’

13. ‘Liquidity’ Decree-Law
The Decree-Laws of the Council of Ministers
3
introducing measures to help Italy get
going again valued at 55 billion euros:
• help for SMEs: from tax credits of up
to 60% of rent to grants for those who
in April 2020 suffered a 2/3 loss in
revenues compared to April 2019;
• emergency income for low-income
families;
8
APRIL
2020
taking action to support struggling
businesses with measures regarding:
• access to credit, support for
liquidity, export, internationalisation
and investments;
• taxation (suspended payment of
VAT, withholding tax and
contributions for the month of May);
• support for business survival.
‘Relaunch’ Decree-Law
19
May
2020
• VAT exemption for masks;
• holiday bonus of up to 500 euros
per family;
• ‘ecobonus’ allowing to deduct the
110% of the costs from taxes.

14. The “Re-opening” Decree-Law and its DPCM
3
THE MORE DATAILED DPCM
17
May
2020
16
MAY
2020
with the ‘Re-opening’ Decree-Law of 18 May, the
lockdown ‘closed’. The new D-L introduces a
broad regulatory framework regarding citizens’
ability to circulate and restarting economic
activities. This will be supplemented by a DPCM
and by regional measures to implement these
new regulations that set out more detailed rules:
the self-certification form will only be required
when moving from one Region to another.
‘Re-opening’ Decree-Law
The real game-changer in the lives of the Italians was the Government’s decision to give in to the requests of the Regions
and a large portion of the population.
is approved allowing Italians to freely
circulate within their own Region, see
their friends and go to cafes and
restaurants. They are free to go to
their second homes, free to get their
hair cut and to care for their bodies.
Free to go to the park and sit on a
bench, ride their bikes, do sport
outdoors and take part in religious
functions.
However, they must maintain a
distance of at least one metre, wear
a facemask indoors or in crowded
places and allow their temperature
to be taken when required.
The Ministry of Health will continue
to monitor the spread of contagion
and these freedoms may be taken
away.

15. AND THE DPCMS
The Prime Minister Office
Prime Minister Giuseppe Conte often employed the
Decree of the Prime Minister (DPCM), thereby preventing
the involvement of other key institutions in the ordinary
legislative process, and even emergencies decrees:
Government, Parliament and the President of the Republic.
This decision sparked a great deal of criticism:
A pandemic is not a war.
From the DPCM of 4 March prohibiting demonstrations,
performances and sporting events, closing schools and
making it mandatory for citizens to inform the authorities
when entering from and/or transiting in zones initially
considered to be at risk
to the DPCM of 22 March blocking all ‘non-essential
activities’ and prohibiting movement between municipalities
To the DCPM of 26 April – #RestiamoAdistanza
(#KeepOurDistance) –, which starting on 4 May, launched
the beginning of Phase 2 and, while maintaining health and
hygiene measures to contain the epidemic, relaxed
restrictions on movement and restarting economic activities
and services.
“

16. AND THE DRAFT BILLS
THE PARLIAMENT
The decision of the Government, and in particular of
Prime Minister Conte, to personally assume political
responsibility for the decisions to combat the
Coronavirus, and the adoption of DPCMs that do not
get sent to the Parliament for approval, caused relations
between the two Institutions to worsen, mainly between
the opposition groups and the Government.
However, the Parliament has continued to go about its
business, though its pace has slowed down. In the
beginning, the Chamber of Deputies decided to meet
once a week, on Wednesday. The Senate also decided to
limit its work. Numerous Draft Bills were tabled regarding
the Coronavirus, about 50.
From the ‘Tax measures in favour of businesses affected by
reduced exports to China following COVID-19’, tabled by
Gianfranco Rufa (of the right-wing League party) to the
‘Measures to combat speculation and fraud during serious
health emergencies’ by Andrea Ostellari (the right-wing
League) or even the ‘Institution of the figure of the family or
community nurse’ by Paola Boldrini (left-wing Democratic
Party).

17. Getting the work of Parliament going again is not just a political
issue. Bringing together the Assemblies and Committees of the
Chamber of Deputies and the Senate is also a ‘practical’ issue
during a pandemic: how do you ensure their work is carried out
safely in terms of health? How do you ensure social distancing?
THE PARLIAMENT: The right/duty
to start meeting again
In March rules were introduced to regulate
participation in sittings in the Plenary Hall, starting by
reducing the number of MPs who can participate
to allow for proper distancing, in proportion to
the Parliamentary Groups. However, the limited quotas
have not always been respected… One of the hypotheses
up for consideration: absentee voting.
Many argue that this is unconstitutional.

18. THE REGIONS
Competence regarding health protection is shared between the
State and the Regions: the State sets out the fundamental
principles (binding for all Regions); the Region adopts the specific
regulations. This can lead to the adoption of organisational formulae
that vary considerably from Region to Region.
Art. 3 of the #CuraItalia Decree gives the Regions the power to
adopt additional measures to contain the virus, within certain
limits. For example, they:
can intervene only ‘pending the adoption of national
containment measures’;
must be motivated by ‘specific situations arising from the
worsening of healthcare risks within their territory or a part
thereof’;
cannot impact ‘productive activities’ nor ‘those of strategic
relevance for the national economy’;
can only be ‘more restrictive’.

19. C
THE INITIATIVES OF THE REGIONS
Each Region has adopted different regulations impacting the
freedom, mainly of movement, of their citizens. Physical activity:
yes or no? Within or beyond the proximity of your own home?
Mandatory masks: yes or no? And so on…
The initiatives taken by Regions have sparked a great deal of
criticism: what has mainly been questioned is the actual need
for differentiated regulations.
The Government’s tendency to focus too much on centralising
has elicited the same reactions.
The clash between the Central Government and the
Regions has been the leit motif of this crisis.

20. OF REGIONAL REBELLION
THE FIRST SIGN
Calabria adopted an Ordinance broadening, compared to
the national framework, the activities citizens and services
were allowed to engage in, for example, allowing cafes and
restaurants to open before the start of Phase 2 nationwide.
The Regional Ordinance was contested by the Government
and the Regional Administrative Court of Calabria (Ordinance
841/2020) annulled the part of the measure allowing
commercial activities like cafes, restaurants, etc. to open.
Regional President Jole Santelli replied:
A Pyrrhic victory that tramples
all over citizens’ rights […].
The Autonomous Province of Bolzano also sped up
Phase 2 with #AltoAdigesiriparte (#AltoAdigerestars), a
package of measures including, among other things, the
reopening of commercial activities (retail stores, cafes,
restaurants) and personal services (including hairdressers,
beauticians, etc.) starting from 11 May but ‘conditional on
compliance with strict, responsible safety measures’.
The Government intented to oppose some parts of the
Provincial Law, but Bolzano argued that 'it has competence
in virtue of the Statute of Autonomy' and it did not
deflect.
“

21. TASK FORCES
10 april 2020 President Conte announces that a Committee made up of economic and social experts will be
appointed to pinpoint the measures to adopt in Phase 2, in other words, for
a gradual recovery in various sectors of social, economic and productive activities.
“

22. C
Task Forces proliferating
The ‘Phase 2 Task Force’ is chaired by Vittorio Colao, former CEO
of Vodafone, and counts 19 members.
“The creation of specific and special task forces to fight
Covid-19 has involved all levels of Government: Ministers,
Regions, even Municipalities have instituted their own.
The Committee provides ongoing briefings to the Prime
Minister, also by sending periodic reports on the results of
its work and the proposals formulated.
The lack of transparency in its work and whether or not it actually
needed to be instituted, which took decision-making powers away
from the Parliament and the Ministers, raised a slew of doubts.
However, the only task force that has been instituted via a
Prime Minister Decree is indeed the Committee of economic
and social experts.

23. WOMEN ARE MISSING: #datecivoce
(#giveusavoice)
Sixteen female Senators from different Groups submitted
a Motion to ask the Government to
The appointment of experts to fight Covid-19 has shed
light on the fact that women are clearly in the minority on
the various committees and task forces.
There has been a lot, actually loads, of criticism regarding
how very few women there are on the various commissions,
starting with Colao’s task force, to the point that a
movement formed called #datecivoce (#giveusavoice) on
the initiative of a group of women – followed by numerous
other women, civil organisations, etc. – who submitted a
petition to President Conte and to Colao
AndourfemaleMPs?
supplement, starting with the Phase 2 task force,
the makeup of the different bodies at all levels in
order to ensure an adequate presence of men and
women.
“in response to the makeup of your work group,
which only has 4 women out of 19 representatives,
appointed to rebuild the country in response to the
pandemic.
“

24. The “Colao” Task Force is renewed,
though it might be closed down
We can safely say that the role of Colao’s team has
been watered down, and the Government has made
decisions that better serve a political logic.
In fact, during the most heated moments in the clash
between Conte and the Presidents of the Regions,
the Committee’s suggestions went completely
unheeded, and there is no trace of them in either
the Re-opening Decree-Law or its DPCM.
The word ‘resignation’ has been echoing through the halls
of Palazzo Chigi. However, what is far more likely is that
the term will boil down to a polite end in June.
In response to #datecivoce (#giveusavoice), President Conte
added five more women to the four who were already on the
Committee of Experts.
12 MAY 2020

25. New measure =
new self-certificate
In addition to prohibiting citizens from straying from their own
homes, they must also fill in a self-certification form for any
necessary movement. Until 17 May, whoever left their house
had to carry a form filled in and signed that explains their
reasons for being out and about. The self-certification form
is prepared by the Ministry of the Interior and over the last
months, along with the restrictions on people’s freedom of
movement, in order to provide clarity and/or for specific
circumstances, various versions and updates have been drawn
up. The Chief of Police himself explained:
Jokes have been made, but the provisions change and we
have to update the form, also to intercept citizens’ questions.
“Thanks to the 'Re-openings' Decree-Law, from 18 May, the self-
certification will be necessary only to move from Region to Region.

26. GOVERNMENT FAQs
The adoption of many different measures in just a few weeks has given rise to a series of doubts and
questions from citizens regarding ‘who can do what, how and when’, to the point that the Government
decided to address all this uncertainty by publishing a list of FAQs on the measures adopted.
This section has indeed become a true survival handbook to navigate between what citizens can and
cannot do during the lockdown, as well as a government tool to directly communicate with citizens using
plain speech, but also to clear up some controversial rules.
One example in particular stands out: the thorny issue of who is considered a “congiunto” (a relative),
marking the point at which people’s incomprehension of the government rules came to a head. Here, the
government was accused of wanting to establish who people care about and who they don’t (effectively
greenlighting irony on social media!).

27. THE IMMUNI APP
IMMUNI is a contact-tracing app created to combat the pandemic. If someone tests positive for
Covid-19, the healthcare authorities can use the app’s data to alert, via text message, the people who
have been in contact with that person for a period of time and at a distance that would put them at risk
of contagion.

28. Will this be the app that saves
us from contagion?
However, IMMUNI has generated a great deal of doubt as to
whether or not it respects the privacy of its users.
IMMUNI is optional and when downloaded onto our
smartphone it generates a numerical code that is not linked
to the user’s identity. It does not collect personal and
sensitive data (name, surname, address, email, telephone
number, etc.).
The data remain on the device unless the person gets
infected. At that point, the data is sent to the server of the
healthcare authorities. Commissioner Arcuri argues:
between safeguarding health
and freedom
The app is a concern if it becomes just a tool to control the
freedom and movement of the Italians.
Luigi De Magistris, Mayor of Naples and former Magistrate
“Using the Immuni app will be an act of generosity
towards everyone and will be an extraordinary gesture of
community because all the Italians have grasped how
necessary it is to combat this emergency.
“ However, the Authority on privacy has given the launch of
IMMUNI a thumbs up, considering it to be in line with the rules
on data protection. Though he did set out that use of the app
must stop when the state of emergency is over, and in any
case no later than 31 December 2020.

29. In the last months, all of us have been bombarded with information on Covid-19, mostly
online, on social media, on chat sites, etc. We have been the targets of a myriad of
news… but how can we recognise true, reliable information from fake news?
Telos A&S has continued to follow the Institution’s activities in Italy, and it has decided to
offer its own contribution to providing correct information by analysing the main
measures that have re-shaped the essential aspects of all of our daily lives, from work to
school, from our movement to the offering of goods and services, from aid for citizens and
businesses.
Check out our blog for our ‘nuggets of analysis', in both Italian and English.
Telos A&S’s commitment

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