Abstract

Connettere il principio di legalità amministrativa con la partecipazione ai processi decisionali della pubblica amministrazione è oggi più che mai necessario. Per un verso il principio di legalità sembra attraversare una crisi indotta dalle scelte legislative e dagli orientamenti giurisprudenziali, che incide necessariamente sulla validità delle ricostruzioni teoriche e dogmatiche elaborate dalla scienza del diritto amministrativo. Per altro verso la partecipazione è sempre più evocata e invocata per preservare le garanzie dei privati che il suddetto principio assicura. Mai come in questo momento storico, dunque, il nesso tra legalità e partecipazione è stato così stretto da giustificare la necessità di focalizzare l’attenzione su di esso per verificare se la partecipazione come fattore di compensazione della crisi del principio di legalità amministrativa possa assolvere a tale compito L’articolo analizza tale collegamento e giunge alla conclusione che, per raggiungere tale obiettivo, la decisione amministrativa deve necessariamente basarsi sul criterio della mediazione tra le diverse posizioni espresse dai cittadini singoli e associati nel processo decisionale. Occorre inoltre riconoscere che la partecipazione caratterizza in questo momento storico una forma di Stato democratico in cui il rapporto tra società civile e autorità pubbliche è materialmente determinato e garantito attraverso un sistema di partecipazione dei cittadini singoli e associati alle decisioni pubbliche.

Crisis of the principle of legality and participation in the decision-making processes of public administration as a compensatory function: premises for a systematic reconstruction of the phenomenon

Connecting the principle of administrative legality with participation in the decision-making processes of public administration is now more necessary than ever. On the one hand, the principle of legality seems to be going through a crisis induced by legislative choices and jurisprudential decisions, which necessarily affects the validity of the theoretical reconstructions developed by the science of administrative law. On the other hand, participation is increasingly evoked and invoked to preserve the guarantees for private individuals that the aforementioned principle ensures. Never in the past has the connection between legality and participation been so close as to justify the need to focus attention on it to verify whether participation as a factor in compensating for the crisis of the principle of administrative legality can fulfill this task. The article analyzes this connection and comes to the conclusion that, to achieve this objective, the administrative decision must necessarily be based on the criterion of mediation between the different positions expressed by individual and associated citizens in the decision-making process. It is also necessary to recognize that participation in this historical moment characterizes a form of democratic state in which the relationship between civil society and public authorities is materially determined and guaranteed through a system of participation of individual and associated citizens in public decisions.

L'articolo Crisi del principio di legalità e partecipazione ai processi decisionali della pubblica amministrazione in funzione compensativa: premesse per una ricostruzione sistematica del fenomeno* proviene da Nuove Autonomie.

INDICE

SAGGI

Marco Calabrò – Participatory urban regeneration models: the inclusive dimension of sustainability

Raffaele Picaro – Il Building Information Modeling e la gestione digitale del ciclo di vita del contratto pubblico nel d.lgs. n. 36/2023

Fabio Saitta – Il servizio sanitario nazionale: punti fermi e prospettive evolutive

Anna Simonati – Usi civici e patrimonio culturale, fra tassonomie e profili operativi

Alberto Zito – Crisi del principio di legalità e partecipazione ai processi decisionali della pubblica amministrazione in funzione compensativa: premesse per una ricostruzione sistematica del fenomeno

Rosa Geraci – Brain drain e agevolazioni alle imprese che investono in ricerca e sviluppo nell’ordinamento giuridico italiano

Bruno Mercurio, Carolina Cappabianca – Il silenzio assenso nella formazione del permesso di costruire e dell’autorizzazione paesaggistica: fra incertezza dei rapporti e sbilanciamento degli interessi pubblici. La semplificazione che non giova

Daniela Pappadà – Il costo dell’insularità: un problema irrisolto

Vincenzo Desantis – Lo sviluppo (in)sostenibile. Come rileggere il futuro attraverso la Costituzione

Angiola Giovanna Modano – Tutela sistemica dell’ambiente e dei modelli di responsabilità nella prospettiva della bonifica dei siti contaminati

Vittorio Toffaletti – Riflessioni sulla figura del ricorrente “ad hoc” in materia ambientale nel processo amministrativo

Jacopo Vavalli – Lo Stato dinanzi alla evoluzione digitale: la funzione regolatrice del diritto amministrativo in ordine al complesso rapporto tra lo Stato costituzionale di diritto e gli “Stati digitali”

LA DOTTRINA DIALOGA CON LA GIURISPRUDENZA

Gaetano Armao – Il “principio di coesione insulare” e l’incerta lettura della Corte Costituzionale

Lidia Aiello – Paesaggio, agricoltura, energia: il modello dell’agri-voltaico

L'articolo Nuove Autonomie – Numero 1/2-2024 proviene da Nuove Autonomie.

Sommario: 1. Considerazioni introduttive. – 2. Obbligo vaccinale e sicurezza del vaccino: i diversi orientamenti emersi nel seminario. – 3. Obbligo vaccinale e sua legittimità a partire dalla capacità normogenetica del fatto. – 4. Obbligo vaccinale e criteri di interpretazione delle disposizioni normative: una rilevante questione di metodo. – 5. L’obbligo vaccinale tra solidarietà, razionalità, precauzione e trasparenza. – 6. L’ordinanza del CGAR e il contributo d’analisi critico offerto dalla dottrina. – 7. Conclusioni.

1. Considerazioni introduttive
Il seminario ha costituito l’occasione per riflettere, a partire dall’ordinanza “istruttoria” del CGARS, su una pluralità di tematiche tutte di formidabile importanza: la legittimità costituzionale dell’obbligo vaccinale; i criteri con cui interpretare la disciplina, che tale obbligo impone, soprattutto dal punto di vista dell’individuazione dell’ambito soggettivo di applicazione; i rapporti tra diritto e scienza colti nella dimensione sia dell’attività legislativa sia dell’attività amministrativa sia dell’attività giurisdizionale; la razionalità delle scelte compiute per contrastare e contenere la pandemia; la rilevanza del principio di solidarietà per giustificare l’imposizione dell’obbligo; l’applicazione del principio di precauzione; la trasparenza e i connessi problemi di corretta informazione del pubblico. Il seminario ha costituito anche l’occasione per riflettere su alcune scelte processuali compiute dal CGARS che presentano forti accenti di novità. Da ultimo, ma non per ultimo, il seminario si è giovato anche dell’apporto offerto dalla scienza medica attraverso la relazione di un immunologo che certamente ha svolto riflessioni utili per i giuristi. Desidero dunque esprimere in primo luogo un plauso agli organizzatori: il seminario ha rappresentato un ottimo esempio di come la scienza giuridica con le proprie riflessioni possa, partendo dalle decisioni giudiziali, aiutare la giurisprudenza, mettendole a disposizione materiali scientifici di grande qualità e spessore da cui la giurisprudenza stessa non può che trarre giovamento. Agli organizzatori va dunque ascritto il merito di avere attivato un circolo virtuoso tra teoria e pratica giuridica.

L'articolo Pandemia ed obbligo vaccinale: lo stato dell’arte del dibattito dottrinale nel prisma dell’ordinanza del Consiglio di Giustizia amministrativa per la Regione Sicilia n. 38/2022 proviene da Nuove Autonomie.

Abstract
Il saggio vuole analizzare se la teoria della scelta razionale elaborata dalla scienza economica possa essere utilizzata proficuamente nella ricostruzione della decisione discrezionale della pubblica amministrazione. L’ostacolo maggiore al proficuo utilizzo di tale teoria risiede nella stessa definizione di discrezionalità amministrativa quale elaborata dalla scienza giuridica. Muovendo da questa premessa il saggio, dopo avere esaminato le diverse concezioni della razionalità, ricostruisce l’esercizio della discrezionalità della p.a. nei termini di una decisione che rientra a pieno titolo nell’ambito della scelta razionale. Tale ricostruzione apre nuovi scenari alla riflessione sulla possibilità di una decisione amministrativa robotica discrezionale che sarebbero senz’altro preclusi o resi più difficili ove, anziché di razionalità della decisione, si continuasse ad utilizzare il concetto di ragionevolezza.

The essay analyzes whether the theory of rational choice developed by economic science can be used profitably in the reconstruction of the discretionary decision of the public administration. The major obstacle to the fruitful use of this theory lies in the same definition of administrative discretion offered in legal studies. Starting from this premise, the essay, after examining the different conceptions of rationality, reconstructs the exercise of the discretion of the public administration in terms of a decision that is fully part of the rational choice. This reconstruction opens new scenarios for reflection on the possibility of a discretionary robotic administrative decision that would certainly be precluded or made more difficult if, instead of rationality of the decision, the concept of reasonableness continued to be used.

L'articolo Teoria della scelta razionale e teoria giuridica della discrezionalità amministrativa: prolegomeni per un inquadramento sistematico* proviene da Nuove Autonomie.

Fascicoli 2-3/2011

Pdf

Abstracts

THE RIGHT TO A HEALTHY ENVIRONMENT IN COLOMBIA

by Gloria Amparo Rodríguez

This paper describes the progressive recognition of the right to a healthy environment in Colombian legal system, one of the more advanced models of environmental guardianship in Latin America. The 1991 Colombian Constitution not only contains several regulations foreseeing environment protection, but it also consecrates the individual right to the environment and it foresees the duty of the State to guarantee the participation of the people to decisions able to engrave on the environment. The environmental legislation has introduced different mechanisms allowing people to take part to administrative proceedings on environmental matter (law n. 99 of the 1993) and it also has regulated different tools for jurisdictional guardianship of the individual right to the environment, as popular actions to defend collective interests, among which the interest to a healthy environment (law n. 472 of the 1998). Nevertheless, the article underlines how, although Colombian system is highly sophisticate, there are still many operational problems that compromise the real application of this normative of environmental protection.

ABOUT THE CONSTITUTIONAL TRIAL LENGTH

by Giovanni Pitruzzella

The subdued contribution regards the timing of the constitutional trial, as another expression of its peculiarity: in particular, aside of relative quickness of it – in comparison with the ordinary ones – the Author underlines the primary topic of the proper protection of the (fundamental) rights, usually implied in all the different types of Constitutional Jurisdiction. Along such topic, in the contribution emerges indeed the unique role of the Court, whose sentences overlap both the political and the judicial competence, and it is for such reason, then, that the Court’s «authority» cannot depend on its quickness in resolving cases but – more properly – on its capability of pursuing and issuing sentences, the more shared as possible by all the Judges themselves. The length of the Constitutional trial – and its procedural terms, prescriptions, decadences – is, therefore, another profile of the absolutely sui generis nature of the Constitutional Jurisdiction.

PRINCIPLE OF NON-REGRESSION, NATURAL PROTECTED AREAS, DECLASSIFICATION

by Fernando López Ramón

Exposition on the development of the legal system of declassification of protected natural areas under Spanish law according to the principle of non regression, considering: a) historical links with economic interests, b) conservationist interpretations derived from the 1978 Constitution, c) international and European system of declassification, in particular the case-law related to the network Natura 2000, d) impulse given by some regional experiences, e) the constitutional and administrative case-law, and f) the assumption of the principle of non-regression in this area by the basic legislation of 2007.

THE SCIENTIFIC CONTRIBUTION OF FABIO MERUSI ON THE ITALIAN SYSTEM OF JUDICIAL REVIEW OF ADMINISTRATIVE ACTS AND DECISIONS

by Alberto Zito

Fabio Merusi is one of the most prominent scholar of administrative law in Italy. The essay examines the works of Fabio Merusi on the Italian system of judicial review of administrative acts. According to Fabio Merusi this system was not able in the past to guarantee the effective protection of citizens against administrative decisions. The essay also examines the reform proposals advanced by Fabio Merusi.

ABOUT THE LEGAL-CONSTITUTIONAL BASES OF THE OBLIGATION TO ADOPT PROVISIONS

by Antonio Colavecchio

The paper examines the legal-constitutional bases of the obligation, on the part of Public Administrations, to finalize their own procedures with an explicit provision (the so-called clare loqui). Such obligation stems from art. 2 of law no. 241/1990. The analysis is carried out by pinning down the contribution of each constitutional and general principle of our administrative framework (as integrated by the EU Law) to the legal basis of the obligation to adopt provisions, as well as to the definition of its content and scope. In particular, the paper points out the contribution of the fundamental principles of the administrative action, such as “impartially”, “good administration”, “transparency”, “legitimate expectation”, in establishing – at constitutional level – the clare loqui obligation, as well as their contribution to make it effective. From this latter point of view, the paper highlights the evolution that, mainly thanks to recent reforms in administrative procedures, has marked the system of protection for citizens in case the Public Administration does not fulfill the obligation to adopt provisions. Such evolution, in the picture of the synergy between legislation and case-law, also in the light of the contribution of the scholars, strengthens the perspective of the citizen claiming an “administrative response” in good time as a real subjective right and, from the European Law point of view, as a fundamental right of the person.

FROM THE STATE REGIONS COOPERATION TO THE PROTECTION OF THE FUNDAMENTAL RIGHTS (AND BACK):

THE CLOSING CIRCLE IN THE SICILIAN REGIONAL EXPERIENCE

by Stefano Agosta

In a very innovative way compared to a “guaranteed” one, the opposite pattern of “cooperative” Regionalism is inspired by a radically different intuition for which the center and the suburbs – precisely with a spirit of fair cooperation – must contribute each other to the exercise of their constitutional functions. From this particular point of view, the Sicilian regional experience represents undoubtedly a real “constitutional forge” ante litteram, being able to distinguish itself in a useful way between an “organic” cooperation and a “procedural” one: in particular, the first one concerns the special prevision of the possible invitation of the Sicilian Region President to take part in Council of Ministers deliberations; the second one, instead, is related to a sort of increasing “scale”, ranging from the mere commitment of information and communication among the several governments levels until the highest “step” represented by the State-Sicily Region agreement. So the “circle” between loyal cooperation and protection of the fundamental rights closes itself whenever the State operates to “unify” regional functions ex art. 117, par. 2, lett. m, Const. (for example, in educational field or public housing development, etc.): that is a cooperation with Sicily, which is equally opened to the whole possible span of existence of State L.E.P. (in particular at the beginning, during and at the end of their emanation). Jurisprudence has the hard task to define – with an acceptable degree of security and stability – the judgment’s standards to use, time after time, for the evaluation of the effective proportionally (sic, reasonableness) of the statal and regional joint action, in view of the highest value in field, that is the super-constitutional one of human dignity.

FORECASTING AND RISK MANAGEMENT IN AREAS OF HIGH HYDRAULIC HAZARD

by Mariaconcetta D’Arienzo

In a field characterized by innate uncertainty and limited rationality, where the need for prudential and preventive dealing collides with the freedom of private initiative, the “co-decision” allows to remove or reduce many of the practical difficulties of implementation plans, providing a meditated assessment of the involved interests and fair balance between the needs of planning and the environmental conservation

SOME NOTES ABOUT RISIKOVERWALTUNG

by Paola Savona

This paper analyses the role played by the precautionary principle (Vorsorgeprinzip) in German constitutional and administrative law. Referring to the principle, several statutes allow public administration to act in order to prevent or reduce risks, i. e. situations in which formal probabilities cannot be assigned to the outcomes due to lack of empirical data or theoretical basis (uncertainty). In such cases, the Administration (s.c. Risikoverwaltung) is endowed with a discretionary power, much broader then the power to counteract a dangers, legal concept commonly referred to a situation in which, if not prevented from taking its course, can be expected, with a sufficient degree of probability, a damage to public or private goods. To balance this power, law creates institutions and procedures, which aim to generate new knowledge and, in the meantime, to guarantee legal certainty.

L'articolo Nuove Autonomie 2-3-2011 proviene da Nuove Autonomie.

Abstracts

THE ACTION FOR THE DECLARATION OF NULLITY OF AN ADMINISTRATIVE ACT

by Enrico Follieri

Having highlighted that in administrative law procedure, as in current procedural law, the principle of the atypical nature of the right of action is based on the need to protect subjective legal situations, it is argued that the Code of administrative law procedure has had to take into consideration (also) typical actions both because the Code governs disputes where one of the parties is an institutional power and it is therefore necessary to define the judge’s decisional powers in respect of the executive, and also because in substantive law subjective rights exist but no lawful interests. The action for the declaration of nullity of an administrative act may be brought before an ordinary judge or before and administrative law judge, except in the case of exclusive jurisdiction, and the discipline before the two judges is presented analytically, emphasizing the typical nature of the action before the administrative law judge and outlining the differentiated rules of nullity for terms of impugnment depending on the parties involved in the process. As a result, doubts of constitutionality have been raised in relation to the parameters of due process (article 111 of the Constitution), and it is argued that the other features of the nullity of an administrative act reflect the absolute nullity established in the Civil Code for contracts.

THE RIGHT TO MARRIAGE AND THE CONSTITUTIONAL IDEA OF “FAMILY”

by Antonio Ruggeri

The first aim of the paper is to highlight how the constitutional model of family is able to emerge not only from the text of the Italian Constitution, but also from the provisions provided by other (external) Charters of fundamental rights, like the European Charter of fundamental rights and the European Convention for the protection of human rights and fundamental freedoms. The paper goes on in the attempt to demonstrate that our Constitution is not neutral or silent with regard to the choice of a particular definition or model of family. By contrast, a careful reading of the relevant provisions of our Constitution shows how the latter endorses a specific cultural model of family confirmed by a very ancient tradition (which has been recalled by the Constitutional Court itself, in the well-known decision n. 138/2010). Tradition, the above mentioned one, not only characterized by a stable relationship between two persons of different sex, but also founded on the marriage’s institution. The paper then analyses some contradictions in the relevant case law of the European Court of human rights, in particular those decisions in which, on the one hand, the Strasbourg judges make reference to the national legislation in order to identify the characteristic of “family” and, on the other hand, recognize also to the same sex relationship the right to a “familiar and private life”. It is also criticized the recent decision n. 4184 of 2012 of the Court of Cassation (the highest judicial authority) in which the Italian judges have manipulated the case law of the European Court of human rights, by declaring that the latter would have said that the task to define the nature of family would have been left directly and exclusively to the national legislation, whereas, as it has been anticipated, the above said definition is first of all connected to the provision of Italian Constitution. Finally, the paper underlines as the above mentioned interpretative approach, shared also by a part of the scholarship, seems able, as final result, to deprive the Constitution of its prescriptive value towards the legislative power, because the latter would be the exclusive authority competent to define what should be meant by the term “family”.

DUE PROCESS IN THE LAGELY AND GLOBAL ORDER: INTRODUCTORY REMARKS ON THE STRATEGIES OF JUSTIFICATION ABOUT THE PRINCIPLE

by Alberto Zito

The paper analyzes the different meanings of the due process applied to administrative proceedings, demonstrating that the guarantee of participation is its most relevant profile. Furthermore it examines the studies in which the relevance of this principle in global decisional processes is analyzed. It proposes a reconstruction meant to demonstrate how the participative principle, as a result of the equal dignity among individuals, can constitute an element for (democratically) legitimating public decisions.

CONSTITUTIONAL ISSUES ABOUT SICILIAN PUBLIC PROCUREMENT LAW

by Marco Mazzamuto

Before of EU regulations and competition principles, it is today more and more difficult to justify a persistent role of Regions in legislative power beyond the competence of the State. In public procurement Italian Constitutional Court has progressively reduced such role for the benefit of the state legislative power, also with regard to Regions, such as Sicily, which enjoy “special” autonomy. Regions are trying to counter this trend, persisting in the approval of regional laws which differ in certain respects from the state law, often just to safeguard local interests opposing free market or just to reaffirm the importance of regional public authorities even in the absence of a genuine public interest justifying different rules.

ENVIRONMENTAL LAW IN THE BRAZILIAN LEGAL ORDER

by Raquel Dias da Silveira

This paper reflects a summary of the main aspects of environmental law and environmental protection in Brazil, based on an analysis of art. 225 of the Constitution, which incorporated the principles of the Stockholm Declaration and the Declaration of Rio de Janeiro. Analyzing the protection administrative, civil and criminal environment, the study focuses on discussions around the new Forest Code pending in Congress. The proposed new Code provides for the suspension and fines amnesty from deforestation in areas of permanent preservation of rural land for purposes of social interest (eg agriculture and livestock), through the Programme for the Environment. In addition to the Programme for the Environment, other changes in Brazilian legislation are seen as a setback for environmentalists. The controversial bill before Congress, if approved, depends, however, the presidential approval.

THE SOCIAL RIGHTS OF NON-CITIZENS: HEALTH, SOCIAL ASSISTANCE AND EDUCATION

by Giuseppe Chiara

Starting from the examination of the regulations on immigration, the essay describes the latest developments of constitutional case law with reference to the recognition of some important social rights to not citizens. Particular attention is paid to the study both of the variety of the parameters used un judging constitutional legitimacy, with significant openings to the principles of the CEDU, and to the argumentations developed starting from the text of the new Title V of the Constitution to involve the intergovernment bodies in the determination of the social policy intended for not citizens too.

SOME REMARKS UPON THE LEGISLATIVE POWER IN LABOUR LAW BETWEEN STATE AND SICILIAN REGION

by Luciana De Grazia

The article investigates which consequences had the reform of Title V, second part of the Italian Constitution, on the legislative power allocation between State and Sicilian Region in labour law matter, with a particular regard to the recent development of the case law of the constitutional Court.

L'articolo Nuove Autonomie 1-2012 proviene da Nuove Autonomie.

INDICE

DOTTRINA

Roberta Lombardi – I miei incontri letterari con Umberto Eco. Ovvero: riflessioni a margine sulla ricerca scientifica e il metodo – 295
Fabrizio Luciani – Considerazioni sui rapporti tra invalidità dell’aggiudicazione ed efficacia del contratto pubblico – 305
Alberto Zito – Diritti sociali e principio dell’equilibrio di bilancio: le dinamiche di un rapporto “complicato” nel prisma delle decisioni giudiziali – 331
Marco Ragusa – Cannabis e terapia del dolore. Un singolare caso di limitazione del diritto alla cura – 347
Vinicio Brigante – Efficient governance and spending constraints in public holding companies of Campania Region. Notes from two strategic sectors – 379
Anna Lazzaro – Pubblica amministrazione e processi di sviluppo sostenibile: la nuova sfida dell’economia circolare – 405
Giovanna Mastrodonato – Diritto alimentare e ambiente. Prospettive del diritto alimentare tra le sfide della globalizzazione e del Covid-19 – 433
Clara Napolitano – Un “terzo paesaggio” per le periferie: abbandono, rammendo, pianificazione – 499
Sveva Bocchini – L’interesse alla salvaguardia ambientale. Profili critici sulla “statalizzazione” della riparazione del danno ambientale – 525
Niccolò Maria d’Alessandro – Il caso dello spoils system nelle società a partecipazione pubblica: profili critici in punto di riparto di giurisdizione – 563

Riccardo D’Ercole – Poste Italiane: tra organismo di diritto pubblico e impresa pubblica – 589
Mario Di Piazza – L’autorganizzazione dell’Assemblea Regionale Siciliana tra norma e diritto vivente – 617
Antonio Mitrotti – Dal “caffè sospeso” alla “economia sospesa”: una lettura giuspubblicistica (tra solidarietà e sussidiarietà) – 661

RECENSIONI

Alessandro Di Martino – Recensione a M. D’Alberti, Diritto amministrativo comparato. Mutamenti dei sistemi nazionali e contesto globale, Bologna, 2019 – 687

Abstract

I miei incontri letterari con Umberto Eco. Ovvero: riflessioni a margine sulla ricerca scientifica e il metodo

di Roberta Lombardi

Il contributo si propone di effettuare alcune considerazioni relative alla ricerca e al metodo nell’indagine giuridica. La prospettiva di analisi assunta dall’autrice è di carattere giusletterario e parte dalla considerazione del volume di Umberto Eco “Come si fa una tesi di laurea. Le materie umanistiche” per arrivare ad alcuni spunti ricostruttivi di matrice gadameriana sul “senso del diritto come esperienza di problemi”, prendendo spunto da alcune pagine del famoso romanzo “Il nome della rosa”.

My literary encounters with Umberto Eco. Side reflections on scientific research and method
I miei incontri letterari con Umberto Eco : ovvero riflessioni a margine sulla ricerca scientifica e il metodo

by Roberta Lombardi

The paper aims to provide insights into the research and methodology used in legal investigations. Taking inspiration from Umberto Eco’s book: How to write a master thesis; the humanites (Come si fa una tesi di laurea. Le materie umanistiche) and using a juridical/literal approach, the Author of this contribution offers some considerations, following the line of a Gadamerian matrix, over the ‘meaning of law, as an experience of problems’. The contribution also owns some inspiration to the famous ‘the name of the rose’ (Il nome della rosa) book by U. Eco.

Considerazioni sui rapporti tra invalidità dell’aggiudicazione ed efficacia del contratto pubblico

di Fabrizio Luciani

Il rapporto tra l’annullamento dell’aggiudicazione e le sue conseguenze sul contratto pubblico già stipulato costituisce un problema conosciuto ed affrontato dal diritto europeo e dalle norme del codice del processo amministrativo che nel 2010 lo hanno recepito. Tra le difficoltà interpretative di queste norme, c’è quella relativa alla natura e alla giustificazione dell’inefficacia del contratto disposta dal giudice amministrativo. Nel saggio si contesta l’idea che tale inefficacia sia la conseguenza tipica della condizione di nullità del contratto, derivante dall’annullamento dell’aggiudicazione, preferendosi piuttosto l’idea che quell’inefficacia costituisca uno strumento atipico e slegato dai difetti intrinseci dell’atto, previsto dal legislatore a garanzia della miglior protezione del mercato concorrenziale e di altri interessi sociali, compatibilmente con l’interesse di colui che ottiene l’annullamento dell’aggiudicazione. Le norme del codice del processo esaminate, pur con alcuni vuoti di disciplina, orientano la soluzione giuridica processuale verso un’efficiente allocazione di risorse scarse, individuando il rimedio di tutela più favorevole ad un’ottimale distribuzione, indirizzando il peso della decisione sulla parte del conflitto più idonea a sostenerne il costo.

Considerations on the ineffectiveness of the contract after the cancellation of the award

by Fabrizio Luciani

The relationship between the cancellation of the award and its consequences on the public contract already concluded is a problem known and addressed by European law and by the rules of the Code of Administrative Procedure that in 2010 transposed it. Among the difficulties of interpretation of these rules, there is that relating to the nature and justification of the ineffectiveness of the contract ordered by the Administrative judge. In particular, the essay disputes the idea that such ineffectiveness is the typical consequence of the condition of nullity of the contract, resulting from the cancellation of the award, preferring rather the idea that ineffectiveness is an atypical instrument and unrelated to the intrinsic defects of the act, provided by the legislator to guarantee the best protection of the competitive market and other social interests, compatible with the interest of the person who obtains the cancellation of the award. The rules of the process Code examined, although contains some gaps in the legal framework, addresses the procedural legal solution towards an efficient allocation of weak resources, identifying the most suitable protection remedy to promote an optimal distribution, entailing the burden of the solution on the conflict part most suitable to bear the cost.

Diritti sociali e principio dell’equilibrio di bilancio: le dinamiche di un rapporto “complicato” nel prisma delle decisioni giudiziali

di Alberto Zito

Il saggio dopo avere esaminato le norme costituzionali che stabiliscono il principio del pareggio di bilancio, analizza gli effetti che tale principio può determinare sulla tutela dei diritti sociali in particolare sulla tutela del diritto allo studio dell’alunno disabile. A tal fine vengono prese in considerazione e discusse le principlai tesi dottrinale e le decisioni della giurisprudenza relative alla tutela del diritto allo studio dell’alunno disabile. Dopo avere mostrato quanto sia complesso il rapporto tra principio dell’equilibrio di bilancio e tutela dei diritti sociali, il saggio conclude che al fine di non negare la tutela effettiva dei diritti sociali nell’attuale fase storica, la corretta regola di tale rapporto è quella che impone, nel momento in cui si compiono le scelte relative al bilancio, la prioritaria destinazione delle risorse al soddisfacimento dei diritti sociali

Social rights and the principle of balanced budget: the dynamics of a “complicated” relationship in the
prism of judicial decisions

by Alberto Zito

The essay examines the constitutional rules that establish the principle of balanced budget and the effects that this principle can have on the protection of social rights, in particular on the protection of the disabled pupil’s right to study. From the analysis of scientific studies and the decisions of jurisprudence with particular regard to the protection of the disabled pupil’s right to education, the complexity of the relationship between the principle of budget balance and protection of social rights clearly emerges. The essay concludes that in order not to deny the effective protection of social rights in the current historical phase, the correct

Cannabis e terapia del dolore. Un singolare caso di limitazione del diritto alla cura

di Marco Ragusa

L’articolo descrive l’assetto del mercato della cannabis terapeutica definito dalla legislazione italiana, evidenziandone la dubbia compatibilità con l’ordinario paradigma accolto dalla Corte di Giustizia in materia di diritto della concorrenza. Gli elementi specializzanti alla base di tale devianza possono essere individuati nelle esigenze di tutela della salute pubblica, dell’ordine pubblico e della pubblica sicurezza: questa peculiarità (presupposta dalla normativa italiana e dalla sua matrice internazionale) non consente comunque di giudicare la regolazione della cannabis terapeutica conforme all’interpretazione consolidata degli articoli 49, 52, 56T.f.Ue e alla altrettanto stabile giurisprudenza della Corte costituzionale italiana in materia di diritto alla salute.

Cannabis and Pain Medicine. A singular case of limitation of the right to health

by Marco Ragusa

This paper describes the main features of the medical cannabis market as defined by Italian legislation, highlighting its dubious compatibility with the ordinary paradigm accepted by the case law of the Court of Justice in the field of competition law. The special elements meant to be at the basis of this derogation can be identified in the protection of public health, public order and public safety: however, such a peculiarity (underlying Italian legislation and its international framework) does not allow to consider the regulation of meical cannabis complying to the settled interpretation of articles 49, 52, 56 TFEU and to the equally established case law of the Italian Constitutional Court on the right to health.

Efficient governance and spending constraints in public holding companies of Campania Region. Notes from two strategic sectors

di Vinicio Brigante

Il presente contributo si propone di analizzare il ruolo delle società a partecipazione pubblica (nella specifica veste di società ‘in house’) quali soggetti deputati all’attuazione di politiche pubbliche sul territorio, in relazione alla complessa ricerca di equilibri tra i, pur flessibili, vincoli di contenimento della spesa e la necessità di garantire efficienza nella gestione di lungo periodo. Lo studio analizza un ambito territoriale specifico regionale (la Regione Campania) e due settori strategici, quello della sanità e dei trasporti, che rappresentano un osservatorio privilegiato di indagine.

Efficient governance and spending constraints in public holding companies of Campania Region. Notes from two strategic sectors.

by Vinicio Brigante

This paper aims to analyze how public-participated companies (in the specific guise of ‘in house’ companies) can play a role in the implementation of public policies in their territories, in relation to a complex search for a balance between, although flexible, constraints of expenditure containment and need to ensure efficiency in long-term management. Research focuses on a specific regional territorial area (Campania Region) and two strategic sectors, health and transport, which are a privileged observatory of investigation.

Pubblica amministrazione e processi di sviluppo sostenibile: la nuova sfida dell’economia circolare

di Anna Lazzaro

Le Direttive europee sull’economia circolare 2018 valorizzano i principi dello sviluppo sostenibile e di integrazione ambientale. Gli stati e i diversi livelli istituzionali sono chiamati a rivedere regole e processi per sviluppare l’economia circolare che promuove una concezione diversa della produzione e del consumo di beni e servizi che passa per il reimpiego delle risorse. Le pubbliche amministrazioni devono attuare nuovi processi di sviluppo che coinvolgono il ciclo di vita dei prodotti e che riguardano non solo la gestione dei rifiuti, ma anche la responsabilità estesa dei produttori, l’end of waste, la bioeconomia, gli appalti verdi.

Public administration and sustainable development processes: the new challenge of the circular economy

by Anna Lazzaro

The European Directives on the circular economy 2018 enhance the principles of sustainable development and environmental integration. The states and the different institutional levels are called upon to review rules and processes to develop the circular economy that promotes a different conception of the production and consumption of goods and services that passes through the re-use of resources. Public administrations must implement new development processes that involve the life cycle of products and that concern not only waste management, but also extended producer responsibility, the end of waste, the bioeconomy, green procurement.

Diritto alimentare e ambiente. Prospettive del diritto alimentare tra le sfide della globalizzazione e del Covid-19

di Giovanna Mastrodonato

Il saggio intende indagare i caratteri peculiari del diritto alimentare, quale complesso sistema multilivello, e i princìpi che lo reggono, evidenziandone al contempo le prospettive di sviluppo nel prossimo futuro. È infatti noto che la pandemia da Covid 19, che ha colpito in modo assai grave il settore agroalimentare, abbia comportato inevitabili chiusure dei mercati, con il conseguente rallentamento del processo di globalizzazione ormai in atto da tempo. Si rivelerà pertanto fondamentale il ruolo dell’Unione europea nel coordinamento della reazione alla crisi, anche in relazione alla tutela del valore della concorrenza, da un lato, e della sostenibilità ambientale e sociale, dall’altro.

Food Law and Environment. Perspectives of Food Law facing challenges of Globalization and Covid-19

by Giovanna Mastrodonato

This paper aims to address peculiar features of Food Law, as a complex multi-level system, and principles that underpin it, while highlighting its prospects for development in the near future. In fact, it is well known that Covid-19 pandemic, which has affected the agri-food sector in a substantial way, has led to inevitable market closures, with a resulting slowdown in the globalization process that has been going on for some time. EU’s role will be crucial in coordinating responses to crisis, including in relation to protecting the value of competition, on the one hand, and environmental and social sustainability, on the other.

Un “terzo paesaggio” per le periferie: abbandono, rammendo, pianificazione

di Clara Napolitano

Le periferie urbane sono confinate in quartieri a volte problematici e discussi, a volte dimenticati. Al degrado urbano ed edilizio, all’abbandono, si associano contesti sociali privi d’identità e lontani dai valori condivisi del centro. Per affrontare questi temi, il legislatore e l’Amministrazione sovente hanno creato strumenti nuovi e flessibili: progetti – anche in collaborazione con il tessuto sociale più attivo e vivace – che mirano al “rammendo” dei quartieri periferici. Questi progetti spesso però associano al pregio della flessibilità il difetto della loro essenza puntiforme: mancano di una visione d’insieme e non tengono conto delle nuove emergenze tra le quali, per esempio, il contenimento del consumo di suolo. Queste caratteristiche sono piuttosto tipiche di uno strumento più datato ma ancora efficace: la pianificazione; la quale, come testimoniano le leggi regionali e gli interventi statali, può essere orientata alla rigenerazione urbana e all’inclusione sociale. Anche la Regione Puglia si è dotata di strumenti pianificatori specificamente orientati alle periferie sia sotto il profilo edilizio che quello sociale, produttivi di risultati positivi.

A third landscape for the suburbs: abandonment, mending, planning.

by Clara Napolitano

Urban suburbs are often confined to neighbourhoods that are sometimes problematic and discussed, sometimes forgotten. Social contexts devoid of identity and far from the shared values of the center are associated with urban and building decay and abandonment. To deal with these issues, the legislator and the public administration have often created new and flexible tools: projects – also in collaboration with the most active and lively social fabric – that aim to “mend” the peripheral neighbourhoods. These projects, however, often associate the defect of their point-like essence with the advantage of flexibility: that is, they lack an overview and do not take into account new emergencies including, for example, the containment of land consumption. These characteristics are rather typical of a more dated but still effective tool: planning; which, as evidenced by regional laws and state interventions, can be oriented towards urban regeneration and social inclusion. Also the Puglia Region has equipped itself with planning tools specifically oriented to the peripheries both from a building and social point of view, producing positive results.

L’interesse alla salvaguardia ambientale. Profili critici sulla “statalizzazione” della riparazione del danno ambientale

di Sveva Bocchini

Numerosi e persistenti dubbi animano il dibattito relativo all’individuazione dei tratti teorici e delle modalità operative della legittimazione ad agire per riparazione ambientale dell’ente pubblico territoriale. Le ragioni possono individuarsi, da un lato, nell’introduzione a fronte di un danno ambientale di un duplice sistema tutela di alternativo amministrativo e giurisdizionale entrambi rimessi all’iniziativa statale e, dall’altro, nella difficoltà di individuare tratti di differenziazione e qualificazione dell’interesse dell’ente pubblico territoriale alla conservazione delle risorse naturali che prescindano dalla lesione di specifici interessi individuali. Scopo del contributo è di riflettere su entrambi i profili alla luce del più ampio dibattito che sta investendo il tema della tutela degli interessi superindividuali e delle tecniche di tutela di tali interessi e ciò nell’intento di riportare a sistema l’intero impianto normativo e al contempo implementare il livello di protezione ambientale.

Interest in environmental protection. Critical profiles on the “nationalization” of the reparation of environmental damage

by Sveva Bocchini

Numerous and persistent doubts animate the debate concerning the identification of the theoretical traits and operating methods of the legitimacy to act for environmental repair of the territorial public body. The reasons can be identified, on the one hand, in the introduction of a dual system of alternative administrative and judicial protection against environmental damage, both remitted to the state initiative and, on the other, in the difficulty of identifying traits of differentiation and qualification of interest of the local public body to the conservation of natural resources regardless of the damage to specific individual interests. The purpose of the contribution is to reflect on both profiles in the light of the broader debate that is affecting the issue of the protection of super-individual interests and the techniques for the protection of these interests and this with the aim of bringing a system of the entire regulatory framework and simultaneously implement the level of environmental protection.

Il caso dello spoils system nelle società a partecipazione pubblica: profili critici in punto di riparto di giurisdizione

di Niccolò Maria D’Alessandro

Il presente lavoro trae spunto da una recente sentenza della Corte di Cassazione in materia di spoils system in una società a partecipazione pubblica nella quale è stata dichiarata la giurisdizione del giudice ordinario. L’autore – dopo una doverosa premessa con riferimento ai criteri ed alle teorie sul riparto di giurisdizione tra giudice ordinario e giudice amministrativo – affronta il problema dello spoils system in generale per poi andare a focalizzarsi (in chiave critica) sulla richiamata sentenza della Cassazione. L’autore, infatti, cercando evidenziare le criticità e i punti dolenti di tale sentenza, ritiene che l’applicazione dello spoils system costituisca un atto di alta amministrazione connotato da forte discrezionalità e impugnabile in sede giurisdizionale – amministrativa.

The case of the spoils system in public participation companies: critical profiles in the point of jurisdiction

by Niccolò Maria D’Alessandro

The present work draws inspiration from a recent ruling by the Court of Cassation on the subject of spoils system in a public participation company in which the jurisdiction of the ordinary judge has been declared. The author – after a necessary premise with reference to the criteria and theories on the division of jurisdiction between ordinary judge and administrative judge – faces the problem of the spoils system in general and then focuses (critically) on the aforementioned Cassation sentence. The author, in fact, seeking to highlight the critical points and the sore points of this sentence, believes that the application of the spoils system constitutes an act of high administration characterized by strong discretion and challenged in the jurisdictional – administrative context.

Poste Italiane: tra organismo di diritto pubblico e impresa pubblica

di Riccardo D’Ercole

Il presente contributo analizza i diversi ambiti di operatività di Poste Italiane con specifico riferimento all’applicabilità, nei suddetti settori, della disciplina dei contratti pubblici. La questione intreccia inevitabilmente il problema della qualificazione della natura giuridica di Poste in termini di organismo di diritto pubblico o di impresa pubblica. La finalità del lavoro è quella di indagare profili di connessione tra le attività concretamente poste in essere da Poste e la necessità, per quest’ultima, di operare con procedure ad evidenza pubblica. In particolare, a tal riguardo, si è approfondito che il distinguo più avvincente non attiene al profilo formale relativo alla qualificazione giuridica dell’ente, quanto a quello sostanziale concernente i vari settori operativi di Poste.

Poste Italiane: between body governed by public law and public undertaking

by Riccardo D’Ercole

This contribution analyses the various areas of operation of Poste Italiane with specific reference to the applicability, in the above-mentioned sectors, of the discipline of public contracts. The question inevitably intertwines the problem of the classification of the legal nature of Poste in terms of a body governed by public law or a public undertaking. The aim of the work is to investigate profiles of connection between the activities concretely put in place by Poste and the need to operate with procedures with public evidence. In this regard, it was noted that the most interesting distinction does not concern the formal profile of the legal status of the entity, as regards the substantive one concerning the various operating segments of Poste.

L’autorganizzazione dell’Assemblea Regionale Siciliana tra norma e diritto vivente

di Mario Di Piazza

La prerogativa della potestà di autorganizzazione, riconosciuta alle assemblee legislative regionali, è stata prevalentemente oggetto di attenzione da parte della giurisprudenza, in primo luogo di quella costituzionale. L’Assemblea regionale siciliana, primo Consesso politico-legislativo regionale dell’Italia repubblicana, ha avuto il ruolo di “pioniere” nell’esercizio di detta potestà, anche in forza dello Statuto speciale di autonomia della Sicilia, che, quale fonte di rango costituzionale, contiene esplicita attribuzione formale della prerogativa in questione. Il presente lavoro si propone di ricostruire la storia e i contorni di siffatta guarentigia costituzionale, contorni progressivamente affinati e sceverati dal filtro del “diritto vivente”, dalle origini fino alla decisa presa di posizione chiarificatrice della Corte costituzionale del 2019 e 2020, cui hanno fatto seguito gli ulteriori apporti definitori delle corti giudicanti di merito. Uno spunto, il presente scritto, per quanti volessero osservare più da vicino la perenne dialettica tra “ius proprium”, derivante dall’autonomia, e “ius commune”, ovverosia il diritto comune inteso quale “grande regola dello Stato di diritto”, come ci rammenta la Corte costituzionale nelle pronunce n. 379 del 1996 e n. 120 del 2014.

The Sicilian Regional Assembly’s power of self-organization between rule and living law

by Mario Di Piazza

The prerogative of the power of self-organization, recognized to the regional legislative assemblies, has been subject of greatest relevance for the jurisprudence, first of all by the constitutional one. The Sicilian Regional Assembly, the first regional political-legislative assembly of Italy in the republican era , had a “pioneering role” in the exercise of this power, also in virtue of the Sicilian Special Statute of autonomy, which, as a source of constitutional rank, contains explicit formal attribution of the prerogative in question. The present work aims to reconstruct the history and contours of such constitutional guarenty , contours progressively refined and distinguished by the filter of “living law” from the origins until the adoption of a clear position by Constitutional court in 2019 and 2020 , followed by further courts’ of merit defining contributions. This work is a starting point for those who have the will to observe closely the perpetual dialect between “ ius proprium” , that derives from the autonomy , and “ius commune”, i.e. the common law known as “great rule of law”, as remembered by the costitutional Court’s judgements n.379/1996 and n.120/2014.

Dal “caffè sospeso” alla “economia sospesa”: una lettura giuspubblicistica (tra solidarietà e sussidiarietà)

di Antonio Mitrotti

Un interessante studio economico presentato recentemente da «Il Sole 24 Ore» ha evidenziato la progressiva diffusione oltre i confini partenopei (ed addirittura fuori dagli stessi confini nazionali) del, celebre, fenomeno del “caffè sospeso”: il presente contributo vuole offrirne una ‘sperimentale’ lettura giuridica, alla luce dei ricollegabili profili costituzionali ed amministrativi.

From “suspended coffee” to “suspended economy”: a juspublicist reading (between solidarity and subsidiarity)

by Antonio Mitrotti

An interesting economic study recently presented by “Il Sole 24 Ore” has highlighted the progressive spread beyond the Neapolitan borders (and even beyond the national borders themselves) of the famous phenomenon of “suspended coffee”: this contribution aims to offer an ‘experimental’ legal reading, in light of the constitutional and administrative profiles that can be linked.

L'articolo Nuove Autonomie 2-2020 proviene da Nuove Autonomie.

INDICE
DOTTRINA

Laura Lorello – Sistema dei partiti, legislazione elettorale e disciplina dei gruppi parlamentari: è possibile governare la frammentazione politica in Italia? -145
Francesco Manganaro – L’eguaglianza di genere nelle pubbliche amministrazioni e nelle Università – 179
Anna Romeo – Statuto siciliano e specialità: tradizione e futuro dell’autonomia regionale – 197
Alberto Zito – La politica pubblica dei trasporti tra libertà di movimento ed interessi sociali ed economici: profili concettuali e sistematici – 215
Ornella Spataro – Autorità amministrative indipendenti e istituzioni politiche: questioni problematiche – 227
Marco Ragusa – Responsabilità degli amministratori di società pubbliche e giurisdizione contabile. Brevi notazioni critiche – 267
Alessio Rauti – L’accesso alla cittadinanza come strumento di integrazione – 287
Dario Capotorto – I “super poteri” dell’ANAC: contraddizioni e paradossi delle misure di prevenzione anticorruzione sulle imprese “sospette” – 323

NOTE E COMMENTI

Mario Palma – Competenze legislative statali e regionali nella determinazione della disciplina del procedimento amministrativo: il caso della Conferenza di servizi. (Commento a Corte costituzionale 25 gennaio 2019 n. 9) – 379
Vincenzo Desantis – Recensione al volume di Pasquale Pantalone, Autorità indipendenti e matrici della legalità, Napoli, Editoriale scientifica, 2018 – 401

Abstract
Fragmented party system in Italy: nightmare or advantage for democracy?
by Laura Lorello

In building the newly-established democracy, the Authors of the Italian Constitution attributed a fundamental role to political parties. Therefore, the Italian political system comprises numerous political parties, often small in size, which have to coalesce to form a government majority. The resulting fragmented party system in Italy is generally considered a negative characteristic. Historically, it has been very difficult to reduce the number of political parties. Many attempts were made to modify the electoral system, from proportional representation to majority rule during the last thirty years. More recently, further attempts have been made to introduce more restrictive rules to form a parliamentary group in the Senate (one of the two Houses of Parliament). However, it can be said that the fact of having many parties is advantageous to the contemporary Italian and global contexts in preserving democracy from attrition, degeneration and self- destruction.

Gender equality in public administrations and universities
by Francesco Manganaro

The work analyses the slow evolution of the discipline on gender balance in political and management bodies of public administrations, detecting progress and persistent weaknesses noting its progress and persistent gaps. In particular, the effects of this discipline are examined in universities and research centres.

Sicilian statute and regional specialty: tradition and future of regional autonomy
by Anna Romeo

In the context of a reflection on the continuing relevance of special autonomies, the work examines the value to be given to the Statute of the Sicily Region, as a region with special autonomy, and in particular, the continuing relevance of its Statute, especially in light of the draft revision of the same. In this draft, a different logic would seem to emerge than the original Statute of 1946, and in particular, a logic no longer characterized by a self-referential dimension but inspired by the affirmation of a democracy open to the participation of citizens, individuals and associates, as well as local authorities present in the territory. In order to outline the terms of an effective responsibility for political and administrative power towards the community of reference, the work calls for a reflection on the regional powers and prerogatives to be directed towards the best guarantee and protection, at a given historical moment, of the constitutionally relevant interests of citizens. The suggested direction is that of a rethinking of the guarantees contained in the Statutes of Regions with special autonomy that takes into account the need to achieve a delicate balance between divergent interests: protection of special autonomy and, together, national unity, on the one hand; legal certainty and effectiveness of guaranteeing autonomistic needs on the other.

Public transport policy between freedom of movement and social and economic interests: conceptual and systematic profiles
by Alberto Zito

The essay aims to analyze the interests present in public transport policy and the correct method of taking decisions. In this policy, which today is defined in particular at European level, there are many interests. The most relevant is the person’s interest in mobility that constitutes a fundamental freedom recognized in the Italian and European legal system. Starting from this premise, the essay analyzes the decision-making process in the field of public transport policy, showing the importance of the participation of all stakeholders.

Independent administrative authorities and political institutions: problematic issues.
by Ornella Spataro

The independent Authorities represent a model of regulation that is foreign to the Italian legal tradition, and, for this reason, their legal positioning has aroused, and continues to arouse, doubts and uncertainties, re-proposing fundamental questions that appear to be anything but dormant. Furthermore, the dynamics connected to the functioning of the independent Authorities have shown a remarkable evolutionary capacity, so their role has undergone important changes, taking on different characteristics with respect to the functioning of the form of government, and involving new arrangements in relations with the organs of legislation, as well as with the organs of the jurisdiction. Functional autonomy, neutrality and independence, in fact, do not mean absolute separation from the circuit of the political direction, with which the decisions of the Authorities necessarily interface: the decisions of the Authorities, although adopted outside the logic of the political party, combine to form the legal system, not only with the production of acts attributable to “soft law”, but also through a concrete participation in the determination of the political-regulatory direction in the individual sectors of reference. The independent Authorities exercise heterogeneous competences, some typically administrative, some integrate decision-making functions, while, in other cases, their competences result in the production of juridical norms. This determines that they, by subtracting significant shares of activity from the political as well as from the jurisdictional bodies, are included in the decision-making powers in which the state apparatus is articulated, of which they constitute an indefectible structural side by material constitution . The independent Authorities occupy portions of statehood, no longer included in the traditional parliamentary model. At the base of the phenomenon we can identify the insufficiency of the classic system of separation of powers to resolve new questions, in which the high technicality intersects the problems of fundamental rights, projected against the background of economic and juridical scenarios animated by strongly evolutionary logics. This testifies that the state order, as it has evolved according to the schemes of representative democracy, has lost his completeness in the face of the evolution of the markets and the fundamental rights; hence the need to trace new organizational methods that go beyond the traditional cycles of political direction and responsibility: the structure of the material constitution has by now incorporated a type of regulation that representative democracy, not having the right tools to guaran-266 Ornella Spataro tee the proper functioning of complex sectional orders, cannot express. In this perspective, the legitimacy of the Authorities, based on the canons of procedural democracy that inform their functions, could be traced with reference to different constitutional formulas, responding to the schemes of participatory or deliberative democracy, which found alternative democratic models to the one built on political representation Parole chiave: autorità indipendenti; costituzione economica; legittimazione democratic.

The liability of publicly-owned companies’ directors under the jurisdiction of the Corte dei conti. Some
critical brief remarks.
by Marco Ragusa

The art. 12 of d.lgs. n. 175/2016 transposes the conclusions reached by the Italian Corte di cassazione on the liability of publicly-owned companies’ directors (and about and the consequential division between ordinary courts and the Corte dei conti jurisdiction). The paper retraces the fundamental stages of the jurisprudential path that led to this result and highlights some of its contradictory aspects.

Access to citizenship as a means of integration.
by Alessio Rauti

The paper aims to analyze the relationship between the integration needs of foreigners and the legislative choices on the criteria of citizenship acquisition and loss. In particular, we highlight the critical issues tied to the concepts of ontological citizenship and market citizenship: the first – which still supports entirely the Law on Italian citizenship – relies on questionable presumption of blood citizen supplied with civic virtues; instead, the second one is beginning to appear in European Countries and it’s not less dangerous because of his potentially discriminatory power and the lack of a “genuine link” between the citizen and the political community. Arguing the postulate that the legislative power is not completely free in the choice of the criteria for the acquisition and the loss of citizenship, a reconstruction is proposed in terms of constitutional policy, starting from the development of personalistic principle.

The “super powers” of the ANAC (National Anti-Corruption Authority): contradictions and paradoxes of anti-corruption prevention measures on “suspicious” companies.
by Dario Capotorto

The essay examines the controversial issue of extraordinary measures for the management, support and monitoring of companies that are successful tenderers of public contracts for the construction of public works, services or supplies of suspected illicit origin, introduced by article 32, of legislative decree 24 June 2014, n° 90 (i.e. anti-corruption decree, converted with amendments to the law of 11 August 2014, n° 114). After a detailed analysis of these measures, also in the light of the case-law and the practice established in the first five years of application, the author highlights the interpretative issues and difficulties of application, focusing in particular on the paradoxes and inconsistencies produced by this new legislation. In particular, it should be noted that the effect of conservation of public procurement contracts in progress – assured by the new management tools – produces serious prejudices regarding the correct functioning of competitive mechanisms, as well as significant coordination problems with other laws.

State and regional legislative powers in determining the administrative procedure: the case of the Services Conference (Conferenza di servizi). (Note to Constitutional Court no. 9 of January 25, 2019).
by Mario Palma

With the sentence no. 9 of January 25, 2019, the Constitutional Court deemed that the regional regulation set forth under the law of the Lombardy Region n. 36/2017, governing the procedure for the approval of the environmental impact assessment through a service conference, breached the exclusive legislative competence of the State with regard to the essential service levels – pursuant to art. 117 second paragraph, letter m) of the Constitution. The qualification as essential service levels pursuant to art. 117 paragraph 2, letter m) of the Constitution – of the State rules governing the administrative proceedings significantly affects regional competences. The decision of the Constitutional Court n. 9/2019 examined in detail the regional regulations and the exceptions set by the latter to State regulation, highlighting the nature of interposed norms of specific provisions among those regulating the services conference under law n. 241/1990. State provisions are included in those setting essential levels of services, not on the basis of their scope of application but in light of the adequacy of these rules to guarantee uniform protection of significant interests.

L'articolo Nuove Autonomie 2-2019 proviene da Nuove Autonomie.

INDICE
DOTTRINA

Guido Corso – La rappresentanza politica nell’era digitale – 193
Loredana Giani – Spunti per la costruzione di una “cultura dell’innovazione” negli appalti in sanità – 205
Alberto Zito, Maria Immordino – Aggregazione e centralizzazione della domanda pubblica di beni: stato dell’arte e proposte di migliorie al sistema vigente – 223
Salvatore Cimini – Il regime giuridico delle concessioni autostradali – 237
Giovanna Pizzanelli – Il diritto ambientale tra command and control ed economia circolare: l’utilizzo dei fanghi di depurazione in agricoltura – 275
Vanessa Manzetti – Il sistema dottorale nell’economia della conoscenza – 311
Piera Guglielmini – L’accesso al dottorato di ricerca: un diritto condizionato del dipendente pubblico – 333
Bruno Mercurio – Regime dei titoli edilizi e forma della funzione amministrativa. Alcune riflessioni – 341

Abstract
Political representation in the digital era
by Guido Corso

According to a widespread opinion, digital technology, allowing people to express immediately their will on questions of public interest, opens the door to direct democracy, so that representative institutions would be doomed to death. Through a short inquiry on the reasons that Madison and Stuart Mill, among others, gave in support of representative democracy, the author argues that this political model is not a mere surrogate of direct democracy, made necessary by technical reasons (the impossibility of assembling people in a large society, as Rousseau himself acknowledged), but it also has two more aims. Political representation is able to dilute social conflicts, since political parties, whose existence is implied by representation, not only articulate different interests but also aggregate them; it also promotes the formation of a political class, that is qualified to deal with issues that are so complex that the ordinary citizen is not able to face them.

Ideas for the construction of a culture of innovation in health procurement
by Loredana Giani

The paper focuses on the difficult balance between appropriateness of treatment and containment of health expenditure from the perspective of the effective guarantee of the right to health. It therefore analyses possible solutions for such a difficult balance, that have to be traced by moving from an in-depth discussion on the “quality” of the service itself, the “organisational” profiles and the instruments that the organisation possesses to achieve this goal. From this perspective the paper analyses the role that innovation can play. Innovation as a criterion of policy that intercepts new organisational and contractual formulae, as well as new ways of offering products and services which guarantee a better meeting of needs. In particular the paper focuses on the subjective and contractual dimention of innovation in public procurement, underlining the importance of the strategic approach, and the necessity to invest in the capacity building of administrations so as to give them the possibility to make flexible use of existing instruments, finding the most suitable procedure that guarantees the best balance between the containment of costs and the effective guarantee of the right to health.

Aggregation and centralization of the purchase of goods and services: state-of-the- art and proposals of improvement of the law
by Maria Immordino, Alberto Zito

The paper identifies and discusses the problems related to the Italian centralized public procurement system. Such a system is based on a plurality of central purchasing bodies operating at state and local level. This accentuated pluralism jeopardizes the achievement of the objectives that the system pursues, first of all the spending review. The essay proposes some changes to the legislation aimed at making the system more rational and efficient.

The legal regime of motorway concessions
by Salvatore Cimini

This essay focuses on the regime of motorway concessions highlighting its critical points. In particular, the regulations on motorway concessions laid down in the Code of Contracts and all the changes about the regulation affecting the sector are analysed. It also gives an insight into the latest regulatory changes that have assigned the State the task of controlling the safety of motorway infrastructures. Furthermore, it highlights the critical issues related to a (potential) return to a public management of motorways, at the same time underlining how current motorway concessions are too unbalanced in favour of private individuals. Finally, it emphasizes that, in order to achieve greater efficiency in this sector, policy interventions should be limited to the planning phase, entrusting motorway management to unbiased and qualified public bodies.

Agricoltural use of sewage sludge: open questions in the environmental law between command and control and circular economy
by Giovanna Pizzanelli

This article analyzes the agricoltural use of sewage sludge and its regulation in the European and Italian legal system. The debate on sludge recycling and disposal has recently been the target of growing interest, both for economic and for agronomic reasons (mainly in terms of organic matter and phosphorus content), but its use lead to environmental impacts and potential risks for health and the environment, due to the european and italian legislative obsolescence (the Directive 86/278/EEC was adopted over twenty years ago and with a very low limit values for pollutants in sludge). In this context, regional authorities have implemented policies more stringent, thus leading to a low level of harmonisation. Therefore, most of the debate on sewage sludge disposal from waste water treatment concerns the constraints of command and control applied to sludge producers, disposers and users those operating in this sector, in accordance with the preventive and precautionary principles, to ensured an effective soil protection. Given that the sewage sludge is considerated waste by the legislation, the ambitious Circular Economy Package, adopted by Eu, should provide – by the revision of the sewage sludge regulation and the further application of economic instruments for maximise environmental benefits – a view to encourage the application of this waste like a resource, according to high standards of environmental quality.

The italian doctoral system in knowledge economy
by Vanessa Manzetti

The research work aims to investigate public policies concerning research doctorates, and in particular, whether these have put in place a real “value” of the doctoral system. Following this line, the investigation carried out focused both on the financial profile by analyzing the “quantum” of the resources allocated to the system, as well as on the qualitative and social profile, trying to detect the “value” recognized to the PHD degree simply in the labour market (academic and “not”). It is clear that these two aspects assume an approach that cannot be conceived as a separate and standing alone analysis, since the quantitative profile of the resources obviously affects the rest, creating “serious” distortions in the system to the point of qualifying the doctoral education as a typical hypothesis of market failure, not only in the occupational sense, but also in economic and social one. It is also true that public policies aimed at the qualitative “enhancement” of the PhD title could, at least in part “downsize” the negative effects deriving from the shortage of resources and from the consequent “no exploitation” in the economic and social sense.

Access to the Doctor of Philosophy: a conditional right of the public employee
by Piera Guglielmini

The right to education ensures access to quality schools and to an education that is directed towards the full development of the human personality. Never-the- less, the access to the doctorate for the public employees can be conditioned from the demands of the Public Administration. This creates a compression of the subjective right of the employee and the purpose of this article it is to analyze the ways through which the law assures the right to the education.

Rule of building permits and form of administrative function. Some comments
by Bruno Mercurio

The rules of building permits has changed profoundly in recent years. Today, only the interventions intended to transform the territory through the construction of a new building are subject to authorization by the administration, through a specific permit; the renovation of a pre-existing building, modifying volume and shape, or urban renovation. In all other cases, for interventions on existing buildings, the building permit or is not required, like in the free building activity, which requires simple communication, or can be self-produced by the private, through reports and certified communications. This limitation to the administrative function, however does not seem to be able to obtain the expected benefits, as we see in the two cases examined, sometimes useless to reach the end of simplification that is proposed, (refers to the heavy restructuring) and sometimes hasty in the renunciation of a public assessment, to the detriment of relevant primary interests, (as in the fractionation with increase of the urban density).

L'articolo Nuove Autonomie 2-2018 proviene da Nuove Autonomie.

INDICE
DOTTRINA

Massimiano Sciascia – La mutevolezza del concetto di potere e la clausola generale sulla giurisdizione amministrativa nel codice del processo amministrativo – 405
Raffaele Picaro – La partecipazione delle Università ad enti di diritto privato nella prospettiva della Terza Missione – 411
Carlos Botassi – Atto amministrativo illegittimo e responsabilità dello Stato – 433
Marco Angelone – Diritto privato «regolatorio», conformazione dell’autonomia negoziale e controllo sulle discipline eteronome dettate dalle authorities – 441
Viviana Molaschi – La democratizzazione delle decisioni science and technology based. Riflessioni sul dibattito pubblico – 463
Giuliano Taglianetti – Effettività dei servizi pubblici e tutela dei diritti fondamentali nella prospettiva europea – 483
Anna Del Prete – Criticità e prospettive per la disciplina del diritto di accesso generalizzato – 531
Alessandro Di Martino – Il dibattito pubblico per la realizzazione delle grandi infrastrutture: quale ruolo per la partecipazione democratica? – 551
Domenico Marrello – Profili di giurisdizione oggettiva nel processo amministrativo spagnolo – 507
Alberto Zito – La tutela atipica nel proceso amministrativo tra principio di effettività, principio di equità e principio di proporzionalità: saggio di metagiurisprudenza – 567
Salvatore Dettori – La funzione di salvaguardia del responsabile del servizio finanziario degli enti locali nella teoria dell’organizzazione amministrativa: profili ricostruttivi – 583

Abstract

The fickleness of the concept of power and the general clause on the administrative competence in the Code of the Administrative Proceedings

by Massimiano Sciascia

The waving nature of the concept of power drives to outline such an evolving line to the point to seek for new keystones in the dialogical structure, at intervals conflictual, between the exertion of the power and the subjective situations conflicting with it. If power is any kind of energy able to move the legal positions of subjects of the system, balancing between authority and freedom, the utmost expression of the time of authority is the adoption of administrative measures which take care of the public interest. It follows that the connection with the power is the distinguishing mark of the administrative competence according to par. 7 a.p.c. and also the knowledge of the rights is in the general clause related to the connection with the exertion or the non-exertion of the power.

The participation of Universities and private law legal Entities in the perspective of the Third Mission

La partecipazione delle Università ad enti di diritto privato nella prospettiva della Terza Missione

by Raffaele Picaro

Considered on the whole as the complex of activities through which Universities and Research Authorities directly relate to society, the Third Mission presents the question of the limits of private right legal instruments. This theme is scanned by current law trends, recently merged into the T.U.S.P., destined to the rationalization of the constellation of public participation Bodies. Against the background we may easily outline the fear that the establishment of the activities of the Third Mission may compromise the original function of public University which, as an intermediate social entity, represents altogether a guarantee of pluralism and of tutelage of the person, with the correlative individualism implementation, but also the protection of the freedom that our Constitution is to ensure to science and education

Unlawful Administrative Acts and State’s Liability

by Carlos Botassi

This paper describes the means by which Argentina’s law provides compensations for damages caused by unlawful administrative decisions. It focuses on the need for recourse to administrative and judicial actions aimed to the annulment of the act as a condition to claim damages caused by its adoption. Due to its short limitation period, validity claim ends up depriving compensation remedies of any practical utility, and exposes the principles of the rule of law to a serious threat.

«Regulatory» private law, conformation of the negotiating autonomy and control over the heteronomous rules issued by independent authorities

by Marco Angelone

The «regulatory» private law issued by independent authorities is studded with heteronomous rules that pervasively affect all the expressions of the negotiating autonomy, coming more and more often to influence even the organizational structure of the enterprises. The phenomenon of conformation under consideration also finds a very strong impulse in the activity of the European Supervisory Authorities and, more generally, in the expansion of «soft law» and «moral suasion» actions carried out by (national and supranational) regulatory bodies. Hence the need to identify a barrier to the «independent» regulation of the markets, which calls the interpreter to derive from the entire legal system the parameters on which to base the control over the correct use of the regulatory powers and over the outcomes of the conformation involving the negotiation autonomy, while ensuring the right to a full and effective judicial review.

The democratization of science and technology-based decisions. Reflections on the public debate

by Viviana Molaschi

This article analyzes the new frontiers of public participation in the field of major works, contextualizing this issue in the complex and increasingly conflictual relationship between scientific and technological evolution and democracy. After outlining the emerging role of “deliberative arenas” as instruments for granting public discussion on science and technology-based public decisions, it examines the recent introduction into the Italian legal system of the public debate, aimed at democratizing siting procedures of large-scale projects and preventing “proximity conflicts”. The paper compares it with the French débat public, underlining some differences: in particular, the Italian legislator has made some regulatory choices that weaken the role of public participation in the decision-making process, which is still characterized by a technocratic vision.

The effectiveness of public services and the protection of fundamental rights in the european perspective

by Giuliano Taglianetti

The essay analyses the close relationship existing between the theme of effectiveness of public services and that of protection of the basic rights. Effectiveness is an essential characteristic of public services in function of concrete realization of constitutional projects of solidarity and of substantial equality. At the same time, it represents the essential presupposition to realize the reality of the rights of freedom. The consciousness of the close bond between public services and basic rights is very present in the European right. In this system, the perspective of the effectiveness of public services, in function of social and territorial cohesion of the Union and, so, of the protection of basic rights, has assumed a main role. In the European vision, the general interest in distributing public utilities able to satisfy the basic needs of citizens can’t be reached only through the application of competitive rules, but it imposes the recognition and the increase of the decision-making autonomy of the member States and of the local authorities. The last, in fact, in virtue of the principle of subsidiarity, sanctioned by the Treaty on the European Union, are intended as the first guarantors of the basic rights and the allocation of public utilities able to satisfy these rights. The autonomy recognized in favour of the local authorities in the acceptance of the public utilities doesn’t mean, however, an absolute and unconditional liberty, an end in itself, but it is “functional” to the attainment of real aims that the same local authorities, as interpreters of needs of collectivities that organize themselves in them, think necessary to assure. Consequently, the aim to assure the effectiveness of the public utilities is, at the same time, the justification of the autonomy recognized to the local authorities in this sector, but also the limit of their action.

Critics and perspectives on the generalised access to administrative documents

Criticità e prospettive per la disciplina del diritto di accesso generalizzato

by Anna Del Prete

 The legislator focus on the “access to administrative documents” has grown in recent years. The legislative decree n. 33/2013 introduced new requirements for web based publications of documents, and informations as well as new form of civic access to administrative documents, inspired to the transparency principles. However the Italian rules for publications differ from the American FOIA: it is not possible to configure an unconditional obligation for publication of all data held by public authorities, but only for those documents contemplated in the law. Moreover, this access is not granted autonomously, but only after the non-fulfilment of a public administration. This essay concerns the introduction into the Italian system of a new instrument of administrative transparency: the so called “generalised access to administrative documents”. The d.lgs. n. 97/2016 acts to overcome two limits of civil access. As a matter of fact, with the generalised access, everyone can access the data and documents held by the public administrations in addition to the public once. Nevertheless, this decree introduces others limits on top of the article 5 bis, which according to the State Council, are more rigorous than those of article 24, law n. 241/1990. The A.N.A.C. has been asked to intervene so to decrease the contrasts, but it bounded itself to list the various limitations, distinguishing among absolute and relative exceptions. Many critics can be raised regarding this new access policy: the excessive number of instances, the high discretionality of public administrations, the difficult balance between transparency and privacy. On the specific issue we are awaiting the Constitutional Court pronunciation, whose importance is even more evident given the entry in power of the European regulation on the personal data protection ( reg. n. 679/2016)

The public debate on large infrastructures: which role for democratic participation?

by Alessandro Di Martino

The attention of the legislator to the role of democratic participation in strategic infrastructures has been confirmed by the introduction of public debate into the public contracts Code. In this framework, we inquired whether the introduction of this institute overcame the gaps arising from the legislators’ choice to operate in an inconsistent way on the participation of local communities for the realization of huge activities. After the analysis of complex administrative decisions characteristics and the necessity to ensure an effective level of participatory safeguards, we focused on citizens’ participation in the field of environmental and urban planning. Pursuant to the recent reform of the environmental code (introduced by Legislative Decree n. 104/2017), in fact, democratic participation has not been effectively guaranteed, leading the administration to think about whether or not to involve the citizens. The study concerns the analysis of public debate, both with reference to the article 22 of the public contracts Code, and to the draft decree – not yet into force – that must dictate the procedural rules on the use of the institute. While on the one hand public debate would seem to mark a turning point with reference to the effectiveness of democratic participation, since the activation of the procedure still allows to have a “zero option”, on the other hand several limits deriving from the legislation still de jure condendo  have been highlighted. The decree draft reveals problematic issues regarding the independence and the neutral nature of the subjective categories that will govern the public consultation process. Referring to citizens participation, instead, it would seem not fully guaranteed for two reasons: firstly, public debate activation restored the administration’s discretionality, which will only have to reach very high standards in technical and economic. A further perplexity regards the guarantee of participation, since the forecast of the consultation outcome will be discussed at the conference of services, being this conference a board of administrations to which only certain categories of people in different qualifications can participate.

Aspects of objective jurisdiction in the Spanish administrative procedural system

by Domenico Marrello

The recent reforms of the Spanish System of Administrative Justice has been made great progress towards the overcoming of the traditional objective nature of its jurisdiction. Despite the quickly reform process in renewing the system in a strong subjective and individual perspective and the doctrine endorsement, the current implementation of Jurisdicción Contencioso-administrativa seems to be suffering of some ancient practical aspects of the previously system.

The atypical protection in the administrative judicial process between the principle of effectiveness, principle of fairness and proportionality principle: meta-jurisprudence essay

by Alberto Zito

The essay deals with the application of the principles of effectiveness, equity and proportionality in the decisions of the administrative judge. To this end, the work examines some innovative decisions taken by Regional Administrative Tribunals and by the Council of State, in which the judge has used the aforementioned principles in order to guarantee effective protection for the applicant. The study also highlights the impact these decisions can have on the main concepts of administrative system.

The safeguard function carried out by the head of the financial service of the local authorities within the theory of the administrative organization: reconstructive issues of the topic

by Salvatore Dettori

The essay analyses the function attributed to the head of the financial service of local authorities concerning the safeguarding of the balance of local finance. First of all, the work shows that the aforementioned function aims to protect a general public interest of constitutional and European significance. In light of this, the essay deals with the aforementioned topic in the perspective of the administrative organization and the public office. The study reveals the possibility that the exercise of the aforementioned function includes the power of the public official to take legal action against the economic and financial planning of the local administration.

L'articolo Nuove Autonomie 3-2017 proviene da Nuove Autonomie.

INDICE
DOTTRINA

Alfredo Contieri – Il riesame del provvedimento amministrativo dopo la legge n. 124/2015 – 331
Alberto Zito – La nuova disciplina degli acquisti centralizzati ad oggetto “informatico”, introdotta dalla legge di stabilità per il 2016: dalla ricognizione dei problemi ad un primo inquadramento sistematico – 341
Nicola Gullo – La contratación pública social y verde en Italia – 353
Ornella Spataro – La revisione costituzionale tra processi riformatori e crisi della rappresentanza politica. Spunti di riflessione – 371
Annalaura Giannelli – Il nuovo codice dei contratti pubblici: cronaca di una rivoluzione (solo) annunciata – 391
Roberto Leonardi – La natura giuridica dell’imballaggio terziario rotto: rifiuto o sottoprodotto? – 419
Fortunato Gambardella – Il vincolo indiretto di inedificabilità assoluta nella tutela dei beni culturali, tra proporzionalità e indennizzo – 437
Viviana Molaschi – La tutela della salute nelle periferie: problemi e prospettive di intervento – 455
Paola Savona – Access to public records and proactive disclosure of information in Italy: an overview – 485

Abstract

The review of administrative action, after the Law 124/2015
by Alfredo Contieri

Following the recent Law n. 124/2015, the Italian public authorities may annul, only within eighteen months, the unlawful administrative measures that enable private activities or give economic advantages. This time limit sacrifices the rule of law and in general the public interest but strengthens the Community principle of trust and of legal certainty also in order to encourage foreign investments in Italy.

The new rules governing purchasing by public administrations of IT services
by Alberto Zito

Law 208 of 28 december 2015 introduced new rules governing purchases of IT services. On the basis of said rules public administrations and their companies are obliged to purchase said services using public central purchasing bodies. The article examines new rules in order to enable correct application by public bodies.

Social and environmental aspects of public procurement in Italy
by Nicola Gullo

This paper examines how the European Union policy induced the Italian legislator to integrate social and environmental considerations into public procurement practices. The new code of public procurement, giving application of the 2014 EU directives, introduce two fundamental instruments. First, the legislative provisions allow contracting authorities to exclude from contract award procedures any supplier or contractor who was found guilty of breaching rules of environmental protection or social objectives promotion. Second, the code allows, under certain conditions, to include social and environmental protection objectives among the criteria for the selection of candidates.

Reflections upon the constitutional review between reform processes and crisis of political representation
by Ornella Spataro

The law of constitutional amendment for which we will vote on December 4 puts citizens before large uncertainties. On the one hand it is presented as a response to unpostponable demands for reform, on the other involves some of the fundamental italian institutions, operating controversial choices on the level of constitutional law. The constitutional reform provides the transformation of equal bicameralism, with consequential changes to the legislative process, the review of relations between State and Regions, the reform of the participating institutions, the abolition of Provinces and CNEL, with system effects that have major repercussions on the overall dynamics of the form of government. The present comment puts in evidence the lights and shadows of the constitutional reform, in order to verify if there is the possibility of identifying a relationship of congruence between the political aims that are invoked to justify it, and the legal instruments that in view of the abovementioned objectives are prepared.

The new Italian public procurement Code: chronicle of a revolution only announced
by Annalaura Giannelli

The paper examines the contents of the new Italian public procurement Code. The analysis aims to verify which are the objectives of the recent reform and whether these objectives have been pursued by the new rules. From this point of view the Code is affected by many contradictions, which must be overcome by the scientific literature doctrine and by jurisprudence.

The legal nature of the broken tertiary packaging: waste or byproduct ?
by Roberto Leonardi

The essay concerns packaging management and especially broken packages. Pending the transposition of the european directive adopted in 2008, broken packages were considered by jurisprudence as waste with the consequent application of the penalty rules in terms of waste management unauthorized. Legislation development, together with the immediate application of the waste directive adopted in 2008, by article 117, 1 Cost., allowed to consider broken but reusable packages as byproducts, with the application of the related discipline provided by Environment Code of 2006.

The indirect restriction of a total construction ban in the protection of cultural assets, including proportionality and compensation
by Fortunato Gambardella

Article 45 of the Code of Cultural Heritage and Landscape regulates the institution of the so-called “indirect restriction” that describes the faculty of the public administration to adopt measures necessary to protect the architectural and environmental context into which cultural assets fall. These measures may also impose, at the expense of the citizens, absolute prohibitions on buildability in privately-owned areas and, in such instances, the law does not recognise any compensation to private individuals. The study evaluates the possibility of overcoming this jurisprudential direction in consideration of the particular importance that the law acknowledges, by way of motivating such restrictive measures, of the proportional nature of the administrative decision and in light of recent reflections on compensation as a rule for the activities of the administration which entail a sacrifice for the private individual.

Health Protection on the Periphery: Problems and Intervention Perspectives
by Viviana Molaschi

The paper tackles the issue of health protection in peripheries. First, it clarifies the notion of periphery, which no longer has only a spatial dimension as a suburb, and introduces the concept of social peripheries, defined as “extensive” and “widespread” by F. Martinelli, which is the context of this research. Then, after analysing the Constitutional and legal framework of health guarantees, it investigates the health situation in peripheries, looking into the reasons why it is worse there and why there are more criticalities and health protection gaps. The study focuses on the following: the effect of financial conditioning factors and the consequences of the economic crisis and of the related service cuts; the issue of the territorial distribution of health and social-health services; the importance of social policies (and of other policies) in guaranteeing the right to health; the role of municipalities in health protection. The analysis aims at identifying instruments that can contribute to improving the health situation of people residing in peripheries. It considers international and European trends that highlight what municipalities can do in order to grant health protection within the Health in All Policies strategy, which has fostered the creation of Healthy Cities Networks.

Access to public records and proactive disclosure of information in Italy: an overview
by Paola Savona

The paper analyses the rules related to the right of access to public documents laid down in Law No. 241/1990 on administrative procedure, and the interpretation given to them by case law. It then presents the Italian FOIA enacted in 2016 and the system of proactive disclosure of public sector information. It concludes that, notwithstanding the salutary introduction in the Italian legal system of a general right to know, the norms on transparency still need to be improved in order to clarify the statutory framework and to find a better balance between public interest in disclosure of information and personal data protection.

L'articolo Nuove Autonomie 3-2016 proviene da Nuove Autonomie.

INDICE

Indirizzi di saluto
Maria Immordino, Presidente del Polo Universitario della Provincia di Agrigento – 177

Mons. Francesco Montenegro , Arcivescovo di Agrigento – 181

Antonio Scaglione, Preside della Facoltà di Giurisprudenza dell’Università degli studi di Palermo – 183

Dottrina

Antonio Carlos Wolkmer – La etica intercultural como fundamento del derecho humano a migrar – 189

Maria Immordino – La salute degli immigrati irregolari tra “certezza” del diritto e “incertezza” della sua effettività – 197

Alberto Zito – Beni primari, diritti sociali degli immigrati e ruolo delle pubbliche amministrazioni – 223

Fabrizio Fracchia – Integrazione, eguaglianza, solidarietà – 229

Estefânia Maria de Queiroz Barboza – La protezione normativa dei rifugiati in America Latina ed in Brasile – 241

Giovanni Francesco Tuzzolino – Lampedusa. Architetture per l’accoglienza – 261

Ornella Spataro – I diritti degli immigrati nella giurisprudenza della Corte Costituzionale – 269

Cristiano Celone – La “detenzione amministrativa” degli stranieri irregolari nell’ordinamento italiano e dell’Unione europea ed il diritto fondamentale di ogni persona alla libertà ed alla tutela giurisdizionale – 299

Roberta Teresa Di Rosa – La tutela dei minori stranieri alla prova delle politiche migratorie – 335

Licia Siracusa – Il diritto penale dell’immigrato: brevi spunti per una riflessione sul diritto penale della paura – 365

Elisa Cavasino – Le trasformazioni del diritto d’asilo – 385

Alessandro Riccobono – Immigrazione e lavoro al tempo della crisi. Aspetti problematici e prospettive di riforma del quadro normativo – 401

Alessandra Sciurba – Le violazioni dei diritti umani nel mercato del lavoro di cura prestato dalle donne migranti – 431

Giuseppe Puma – Convenzione europea dei diritti dell’uomo e non-refoulment in mare – 451

Rosario Papania – La tutela giurisdizionale degli stranieri tra sistema dualistico, giurisdizione “piena” del giudice ordinario e tendenze migratorie dalla giurisdizione amministrativa – 475

Laura Verduci – La condizione esistenziale del migrante e la privazione della libertà personale – 505

Vincenzo Cerulli Irelli – Politica dell’immigrazione e tutela dei migranti (una disciplina positiva in corso di evoluzione) – 519

Abstract

Intercultural ethics as THE FOUNDATION OF THE HUMAN RIGHT TO MIGRATE
by Antonio Carlos Wolkmer

The paper proposes to reflect on a redefinition of the Human Rights concept from a decolonized and intercultural perspective. This re-conceptualization should entail a new methodological rearrangement and an epistemological renovation of their content. It also suggests that, in order to meet the expectations and demands of new subaltern subjects and collective migration movements, the path of Human Rights evolution should be revisited from a critical, emancipatory and contextualized viewpoint. If understood in terms of resistance struggles and social practices of minority groups, fundamental human rights should offer a new ethical foundation for the theoretical development of

the right to migrate. MIGRANTS’ HEALTH BETWEEN THE “CERTAINTY” OF LAW AND THE “UNCERTAINTY” OF ITS EFFECTIVENESS”
by Maria Immordino

The current economic crisis seriously affects the implementation of the migrants’ right to health. This paper focuses on the Italian case, and after a review of the relevant legislation and constitutional jurisprudence, it investigates the many problems related to the effective realization of such right.

CULTURAL BACKGROUN D OF THE IMMIGRANTS AND PROTECTION OF THE SOCIAL RIGHTS
by Alberto Zito

The issue analyzes the protection of the social rights of immigrants with particular regard to the right to health. It addresses the question whether public authorities have to ensure in practice the enjoyment of social rights in accordance with the cultural background of the immigrants. If there are no additional costs, the government should be required to make performance so as to respect the cultural background of the immigrants.

Integration, Equality, Solidarity
by Fabrizio Fracchia

The essay analyses the matter of the integration not only from the point of view – as usually done by scholars – of rights, but stressing the idea of solidarity and the dimension of the duties. Particular attention is given to the conditions that a legal system might require in order to integrate foreign people. After examining the insufficient perspective both of rights and of the principle of equality, established by art. 3 Const., the article suggests that the art. 2 Const. might be considered as the legal provision that can support a new paradigm in the integration process, emphasizing aspects such as the bilateral duties and the personal commitments. In this context the article also examines the link with the problem of the sustainable development and the needs of the future generation, once more based on the idea of duties and solidarity.

THE LEGAL SYSTEM TO PROTECT REFUGEES IN LATIN AMERICA AND BRAZIL
by Estefânia Maria de Queiroz Barboza

In the twentieth century, the international community, horrified by the direction of the war, noted the urgent need for the United Nation member countries to provide assistance to those who were being harassed in their territories. It was recognized that each applicant for asylum or refuge was the result of a pattern of violation of fundamental rights. All definitions of refugees provided in different international and national normative texts in different countries are not exclusive, however, are complementary, and their content are open. The international construction in this topic influenced directly the national regulatory updates of Brazil and other Latin American countries. Most Latin American countries, including Brazil, adopted provisions within the expanded definition of refugee that was set out in Conclusion third of the Cartagena Declaration of refugees. The main challenges to be faced by Latin American countries concerns the refugees and Internally Displaced People from Colombia because of violence and the Haitians who, because of the 2010 earthquake, need humanitarian protection from other countries.

Lampedusa. Architecture for hospitality
by Giovanni Francesco Tuzzolino

The experience, carried on in the architectonical design laboratories, in the faculty of Architecture in Palermo, has had the aim to qualify the teaching of the project with the introduction of important ethic and social contents. If, on the one hand, hospitality is one of the most important value for architecture, on the other hand, it asks us about questions related to human solidarity, to the pacific cohabitation among people and also about the framework of physical and social relations. Today is very useful to confirm the anthropological and social meaning of the project, its inescapable role to converge in form and space all living inquietudes. The way illustrated in these pages get a sense of how the forms of cohabitation among different ethnic groups are necessary and above all they are a resource. Indeed, new architectures not only satisfy the specific living requirements related to the cultural traditions of immigrants, but they also offer useful solutions to the unresolved spatial conditions of the city. Finally, the city is able to provide itself new centralities, places, functions and spaces which are necessary for now. In this way, the hospitality current necessities create the opportunity to offer quality to the urban space, across the theory of coherence and beauty

The rights of immigrants in the jurisprudence of the Constitutional Court
by Ornella Spataro

The issue of migrants’ rights can not be examined except in the light of constitutional law, since, in the absence of normative data with completeness, it should be just to the judgments of the court of law, in large part, the reconstruction of the constitutional status of the immigrant in our area. The identification of the rights to be granted to immigrants, still, is fraught with issues of major problematic, and passes through the rethinking of the fundamental categories of Republican constitutionalism, leading to a reflection that involves the doctrine of fundamental rights issues related to state sovereignty on its territory and the quality of citizenship as a conceptual figure that governs the political participation of the subjects. All this is further complicated when one considers the pluralism of sources within and outside of our legal system, are enabled to affect the subject. Against the backdrop of issues characterized by similar complexity, the script examines the guidelines drawn up by the Constitutional Court, according to a methodological criterion that, in an effort to simplify, distinguishes the issue of jus migrandi and immigration policy, the issue of civil liberties, social rights, political rights. For each of these strands are highlighted efforts made by the national laws towards the enhancement of inclusive tendencies in the Constitution, maximally evident at the level of civil liberties and social rights; whereas, on the contrary, in the area of political rights and immigration policy has so far emerged with more clarity the building conceptual recall that, in the traditional sense, is based on the theory of sovereignty which the State exercises on its territory and that links to formal citizenship, mainly jure sanguinis, the circuit of political participation.

ADMINISTRATIVE DETENTION OF IRREGULAR FOREIGNERS IN Italy AND IN THE EUROPEAN UNION AND THE FUNDAMENTAL HUMAN RIGHT TO PERSONAL FREEDOM AND PROPER DEFENSE
by Cristiano Celone

Foreigners are particularly subject to the restriction of personal freedom. A great number of countries resort to the detention of irregular migrants and asylum seekers by reason of the violation of immigration laws, including irregularly crossing the State border, using false document, non-possession of identification documents, staying after the permit of stay has expired, etc.. In Italy and in other member States of the European Union we can notice an ordinary use of administrative detention of foreigners (without authorization to entry or stay in EU countries) and of other measures of restriction of personal freedom also with respect to aylum seekers. The purpose of this article is to examine the italian and european legal framework of administrative detention of non EU citizens and stateless persons, to see if it comply with the fundamental principles of constitutional and international law and case-law on human rights, with regard, in particular, to the protection of personal freedom and proper defense.

The protection of foreign minors challenged by migration policies
by Roberta Teresa Di Rosa

The aim of the research and the studies was to analyse the space given to minor migrants and their families within the Child Welfare System, comparing it with the laws and services available for native minors and families. Using the analysis of the policy framework and the characteristics of the presence of foreigners in Italy as a starting point, it was possible to observe the characteristics of the service system provided and implemented for foreign minors and their families, as well as those of the principal agents involved in the reception process and the social instruments available for their integration. In addition, the historic analysis of the laws issued on this subject has shown how the level of protection established for the families and minors is inversely proportionate to the definition of the issue of immigration as a question of security and public order. The stereotypical depiction of immigrants, which is prevalently negative, also affects the efficacy of the services, reflecting on the performance of the operators. In the specific case of Italy, this study has revealed how here the presence of a consistent number of unaccompanied foreign minors has led to legal provisions and greater investment in the field of services being focussed specifically on these, while foreign
minors accompanied by their families the are provided with same services that exist for Italian minors and families, without any particular distinction (except to some extent with regard to schooling). Only recently have immigrant families begun to be subject to legal provisions, even though this space, which is provided for in social policy, has yet to materialise in practice. In any case, whatever the rights and services established by law, it has become evident that the perception of cultural difference influences the relationship of the immigrants with the service system. Indeed, it must be underlined that the difference in aid offered is based more on the perception of diversity than on the norms. Hence the need to invest more on training and all-life-long courses for the operators to promote the full application of the laws and a more effective recognition of the rights of immigrant minors and families.

The Immigration Criminal Law: brief remarks on the Criminal Law of Fear
by Licia Siracusa

Immigration Criminal Law should be more appropriately called “Criminal Law of the Irregular Immigrant”, since it shows to essentially be based on the criminalization of mere subjective “status”, rather than offensive managements of legal goods. Indeed, behind the protective shelter of an apparent balance between the need to legally protect human rights and the interest in controlling the migratory flow, the system of incriminations in this sector seems to be deeply imbalanced towards the punishment of types of perpetrators who are socially dangerous. It is namely a matter of model of criminal law very similar to the well known standard of “ Criminal Law of the Enemy”. The inspiring “ratio” of the discipline hasn’t even changed following its adjustment due to the obligation forced by the 2008/115/CE European legislation, decided with Law n.129 of August 2nd 2011. As a matter of fact this didn’t determine a total improvement of the system in a form of compliance to the fundamental principles of legal law, but on the contrary it expanded the ancillary function of criminal law towards the legal action of repatriation, without, on the other hand, removing the irrational aspects of the repressive decisions made by the Italian legislator.

The Transformations of the Right to Asylum
by Elisa Cavasino

Asylum is changing shape. It was a sovereign privilege of the State. After II World War, when Western Europe
had built a new constitutional architecture to fundamental rights of the person, Asylum has become a Constitutional right. Nowadays, territorial Asylum is losing ground. This is due to the interpretation and the application of other Aliens protection regimes drafted in International Treaties and EU Law. The transformations of Asylum is due to precise political, legislative and jurisprudential choices, wich led to the limitation of National Sovereignty. These choices have determined that National Sovereignty has been limited: the Constitutional Right of Asylum is no more receiving autonomous application. It is not clear if this transformation is due to the changing position of the National Constitutional Law towards protection of the Fundamental Rights of the Person, but the legal framework wich resulted from it cannot guarantee equivalent or more effective protection to the Fundamental Rights of Aliens.

Immigration and work at the time of crisis. Current problems and possible reforms of the regulatory framework
by Alessandro Riccobono

The essay analyzes the phenomenon of migration in his role as a structural component of the Italian labor market. Despite the negative effects of the crisis, the contribution of foreign labor has to be considered as a valuable resource to restart the competitiveness of enterprises and to develop the productivity of the economic system. Through an analysis of the regulatory framework currently in force – also in the light of the most recent legislative changes – the Author highlights some of the main critical issues of the discipline about immigrant labor and reports the possible paths of reform to be included in the political agenda of the new government.

THE VIOLATION OF HUMAN RIGHTS IN THE MIGRANT DOMESTIC WORK CARE MARKET
by Alessandra Sciurba

Domestic and care work of migrants women has by now become the subject of extensive international but also Italian studies. Taking for granted some well-established assumptions from the literature, we can thus try to examine the way in which this phenomenon, so relevant in contemporary societies, structurally involves a violation of some of the fundamental rights of these workers and their families. Before entering into the detail of this topic, we will make explicit some general premises that define the outlines of the phenomena of migration and labor market in globalization, within which the domestic and care work provided at a fee by migrant women in Italy have to be read and interpreted. Starting from the analysis of their condition, this paper aims to investigate, within the migrant domestic work and care market, the violation of the right to family unity and that of the child to receive care from their parents in the case of the minors “left behind”, offering a complex perspective with respect both to the quality of the content of these rights and to the level of their violation as a result of the migration of care workers, and with respect to the responsibility for this violation. Finally, taking into account the “care” as a social imperative, fundamentally connected to the human condition, we will examine the possibility to rethink a right to care articulated with respect to the content (either to give and to receive care), and universal and unconditional with respect to its access, reasoning here about its violation in relation with the structural characteristics of the migrant domestic work and care market.

EUROPEAN CONVENTION ON HUMAN RIGHTS AND NON-REFOULEMENT AT SEA
by Giuseppe Puma

This work analyzes the praxis of the push-back operations carried out by the Italian government in order to face the arrival to its coasts of thousands of migrants. The aim of this contribution is to assess the consistency of these operations with the rules laid down in the European Convention on Human Rights. The preliminary question to be solved is to determine whether the Convention is applicable to the push back operations carried out in the high seas, given that, under article 1 of the ECHR, States are obliged to respect the rights set forth in the Convention to all individuals within their jurisdiction. The analysis then focuses on two substantial rules of the ECHR: the first one is that of article 3, which prohibits torture or inhuman or degrading treatment. The European Court have emphasized the fundamental nature of Article 3 in holding that the prohibition is made in absolute terms irrespective of a victim’s conduct. The Court has also held that States cannot deport or extradite individuals who might be subjected to torture, inhuman or degrading treatment or punishment, in the recipient State. On the basis of this provision, we can argue that the ECHR system provides a non-refoulement principle whose scope of application is broader than that contained in the 1951 Geneva Convention on the status of refugees. The other substantial rule that could be applied to the individuals pushed back at the high seas is that contained in article 4 of the Fourth Protocol additional to the ECHR, which states that collective expulsion of aliens in prohibited.

THE JUDICIAL PROTECTION OF FOREIGNERS BETWEEN DUALISTIC SYSTEM, JURISDICTION “FULL” OF THE ORDINARY COURTS AND MIGRATION TRENDS BY THE ADMINISTRATIVE COURT
by Rosario Papania

Different solutions to the issue of the judicial protection of the migrants could be found in the d.lgs. n. 286/1998.
The fact that the migrant is the holder of subjective rights and legitimate interests involves, on the side of the case, the distribution of disputes between ordinary courts and administrative courts, with all the problems that this distribution involves, especially when related acts are given to different judges. The author pauses to describe the powers that the ordinary courts in the context of the so-called full jurisdiction within which fall a large number of cases relating to the
protection of fundamental rights of the human person, it is also analyzed the role that performs the administrative judge in immigration, both from the procedural point of view, both in terms of the case. Finally, it seeks to enhance the contribution that an administrative court can give to the defense of the inviolable rights of foreigners.

THE EXISTENTIAL CONDITION OF MIGRANTS RELATED TO HUMAN RIGHTS
by Laura Verduci

The analytical path that led us through the categories of money, freedom and identity let the immigrant’s existential condition emerge as a unitary condition, though it is structured on many levels. The choice of these three constitutive points doesn’t claim itself to be exhaustive but stands as an approach to this particular otherness’ expression. As already seen, money is not to be interpreted as a mere tool but, considered in a wider existential frame, it becomes an expectations’ symbol; freedom shows its vulnerability; identity, once its uniqueness is lost, gets a bureaucratic and instrumental value. Considering this analysis, the rights’ issues take on a wider connotation. The matter isn’t just to outline an immigrants’ rights specific field from a juridical point of view or, from a sociological one, to give an account of the infringements of their rights. The immigrants’ existential condition is rather an advantaged point of view in order to let a particular social dynamics emerge, where human rights turn out as indivisible and non-negotiable.

IMMIGRATION POLICY AND THE PROTECTION OF MIGRANTS (an evolving discipline)
by Vincenzo Cerulli Irelli

The article outlines the most outstanding features of the legislation on immigration and its problematic profiles, taking into account the reports presented at the Conference on “Immigration law and rights of migrants”. It focuses primarily on immigration policy, traditionally regarded as a corollary of State sovereignty, illustrating the powers of the European Union in the matter of asylum, immigration and control of external borders, the common rules and procedures to entry or stay in EU member States and to repatriate irregular citizens of third countries. Then it outlines the “status” of non EU immigrant in the domestic context, with particular regard to the rights of freedom and to the social rights that must be recognized to him, regardless of the regularity of his stay on the national territory, in the light of the constitutional and legislative framework and in the light of the jurisprudence of the Italian Constitutional Court. Finally, it deals with the national and European legislation on asylum, on entry or stay, on expulsion of migrants, highlighting the most controversial aspects of this legislation with particular regard to the judicial protection and to the allocation of the jurisdiction.

L'articolo Nuove Autonomie 2-3 2013 proviene da Nuove Autonomie.