Sommario: 1. La ricostruzione del fatto. – 2. Le pronunce del Consiglio di giustizia amministrativa. – 3. In particolare, sull’ordinanza di rimessione alla Corte costituzionale. – 4. Considerazioni a margine: sull’obbligo vaccinale. – 5. … e sul c.d. “consenso informato” in caso di obbligo vaccinale.

1. La ricostruzione del fatto

Il Consiglio di Giustizia Amministrativa per la Regione Siciliana prende in esame la posizione di uno studente iscritto al corso di Laurea d’Infermieristica presso l’Università degli Studi di Palermo il quale, giunto al terzo anno e al fine di completare gli studi, è obbligato a partecipare al tirocinio formativo all’interno delle strutture sanitarie dell’Università o con la stessa convenzionate.

L’ateneo aveva in precedenza fornito alla Comunità Accademica le disposizioni relative allo svolgimento delle attività didattiche, tenuto conto delle linee guida ministeriali in materia di prevenzione della diffusione del virus SARSCOV-2.

In particolare, il Rettore aveva disposto la ripresa dello svolgimento dei tirocini curriculari dell’area medico-sanitaria in presenza, condizionandoli alla somministrazione vaccinale. Tali indicazioni generali sono state contestate dallo studente che ne ha chiesto il riesame (fondato su argomenti poi posti a fondamento della richiesta di tutela giurisdizionale).

L’Ateneo ha ritenuto di confermare la posizione assunta evidenziando le ragioni sulle quali era necessaria la vaccinazione. In particolare, venivano richiamati:
• l’art. 23 del DPCM del 2 marzo 2021 in materia di autonomia degli Atenei nella pianificazione della attività didattiche durante l’emergenza sanitaria;
• il DL n. 44/2021 in materia di obbligo vaccinale per gli operatori sanitari, con la finalità di tutela della salute pubblica e di mantenimento delle condizioni di sicurezza nell’erogazione delle prestazioni sanitarie;
• l’art. 2 c. 1 del D. Lgs. n. 81/2008 in materia di equiparazione del tirocinante al lavoratore ai fini della sicurezza sui luoghi di lavoro. L’Ateneo, poi, ha fondato la propria negativa determinazione sulla specifica
valutazione della situazione del ricorrente operata:
• dal c.d. Medico Competente (il quale, dopo averlo sottoposto a visita, aveva rilasciato il proprio giudizio di inidoneità al tirocinio formativo nei reparti di assistenza sanitaria);
• dalla propria articolazione di Medicina del Lavoro (che consigliava l’effettuazione del vaccino, in quanto nonostante il ricorrente avesse contratto il COVID19 nel gennaio 2021, presentava un basso titolo anticorpale già ad aprile 2021).

Il ricorrente, ritenendo di non potersi sottoporre all’inoculazione del “siero covid” sia per la natura sperimentale degli stessi, sia perché in passato ha contratto il covid e ne è guarito (circostanza questa che, a suo dire, gli avrebbe fornito memoria anticorpale e immunità naturale), sia ancora obiettando che, ove si sottoponesse all’inoculazione, rischierebbe danni alla propria salute¹

L'articolo Obbligo vaccinale e discrezionalità legislativa:<br>a proposito delle ordinanze CGARS nn. 38 e 351 del 2022 proviene da Nuove Autonomie.

Abstract

Il saggio affronta il tema del ruolo assunto dalla BCE nello svolgimento della politica monetaria che ha evidenziato non poche criticità sul piano della tensione tra tecnica e politica. Dopo aver ripercorso sinteticamente la nascita dell’Unione monetaria sin dall’idea del rapporto Verner del 1970 di creare una moneta unica e di conseguenza una Unione monetaria poi messa da canto per poi essere ripresa dall’allora Presidente della Commissione J. Delors che nel suo Rapporto (1989) tracciò le fasi in cui si sarebbe dovuta realizzare l’unione monetaria, il lavoro si focalizza sul ruolo assai complesso della BCE. L’indipendenza della BCE (art. 130 TFUE) viene analizzata all’interno del principio dell’indipendenza delle banche centrali nazionali e della compatibilità con il principio democratico che può trovare un primo componimento nella separazione tra autonomia nella individuazione dei fini e autonomia nella scelta dei mezzi con cui perseguirli. In questo senso almeno formalmente la BCE supera il test di compatibilità in quanto l’obiettivo del suo mandato viene individuato dalla fonte primaria sovranazionale nel mantenimento della stabilità dei prezzi escludendo a contrario altri obiettivi quali il sostegno all’occupazione o misure volte al superamento delle asimmetrie economiche tra gli Stati dell’Eurozona. Infine la parte centrale dello scritto si occupa dell’enlargement  of  functions della BCE, quale “custode della costituzione economica europea” che per fronteggiare la crisi finanziaria iniziata nel 2008 ha posto in essere e, in alcuni casi solo annunciato, operazioni non convenzionali (OMT, Q.E. solo per esemplificare) che hanno forzato l’equilibrio tra tecnica e politica e hanno riproposto con forza il problema della legittimazione democratica di un organo indipendente dal potere esecutivo e dal potere legislativo. Da qui un “dialogo fra giurisdizioni”(Tribunale costituzionale tedesco e Corte di giustizia dell’UE) segnato da importanti decisioni che hanno, fra le altre cose, evidenziato quanto sia difficile tracciare con il bisturi la linea di demarcazione tra politica monetaria (rimessa all’UE) e politica economica (rimessa agli Stati membri), ma anche quanto sia complesso affrontare il problema dei confini del sindacato giurisdizionale della CGUE di fronte ad atti caratterizzati da un alto tasso di tecnicismo. I temi che sono venuti in rilievo sono di grande spessore teorico e tutt’ora al centro di un intenso dibattito per cui possono solo essere avanzate delle ipotesi di studio come il possibile utilizzo della categoria della c.d. discrezionalità tecnica per cercare di affrontare il problema relativo al sindacato della CGUE dinanzi a materie squisitamente tecniche o mettere a punto strumenti di trasparenza e accountability della politica monetaria della BCE per cercare di arginare la mancanza di legittimazione democratica fermo restando il principio della sua indipendenza ed autonomia. Infine qualche accenno alle misure adottate durante l’emergenza pandemica.

The role of the ECB in the complex balance between technology and politics

The essay deals with the issue of the role assumed by the ECB in carrying out monetary policy which has highlighted many critical issues in terms of the tension between technology and politics. After briefly tracing the birth of the Monetary Union, beginning from the idea of the Verner report of 1970 to create a single currency and, eventually, a Monetary Union which was put aside and then afterwards resumed by the then President of the Commission J. Delors, who in his Report (1989) wrote about the phases in which monetary union should have been achieved, the work focuses on the very complex role of the ECB. The independence of the ECB (Article 130 TFEU) is analyzed within the principle of the independence of national central banks and compatibility with the democratic principle which can find a first composition in the separation between autonomy in identifying purposes and autonomy in choice of the means by which to pursue them. In this sense, at least formally, the ECB passes the compatibility test as the objective of its mandate is identified by the primary supranational source in maintaining price stability while excluding other objectives such as employment support or measures aimed at overcoming asymmetries between the eurozone states. Finally, the central part of the report deals with the “ enlargement of functions “of the ECB, as “ guardian of the European economic constitution “which in order to face the financial crisis that began in 2008 has put in place and, in some cases only announced , unconventional operations (OMT, QE just to exemplify) that have forced the balance between technology and politics and have forcefully re-proposed the problem of the democratic legitimacy of a body independent of the executive and legislative powers. Hence a “ dialogue between jurisdictions “(German Constitutional Tribunal and EU Court of Justice) marked by important decisions that have, among other things, highlighted how difficult it is to draw the dividing line between monetary policy with a scalpel ( remittance to the EU) and economic policy (remittance to the Member States), but also how complex it is to tackle the problem of the boundaries of the judicial review of the CJEU in the face of acts characterized by a high rate of technicality. The issues that have come to the fore are of great theoretical depth and still at the center of an intense debate for which study hypotheses such as the possible use of the category of the so-called technical discretion to try to tackle the problem related to the CJEU’s trade union in purely technical matters or to develop instruments of transparency and accountability of the ECB’s monetary policy to try to stem the lack of democratic legitimacy without prejudice to the principle of its independence and autonomy . Finally, some hints to the measures taken during the pandemic emergency.

L'articolo Il ruolo della BCE nel complesso equilibrio tra tecnica e politica proviene da Nuove Autonomie.

INDICE
DOTTRINA

Antonella Sciortino – Il ruolo della BCE nel complesso equilibrio tra tecnica e politica – 699
Silvia Tuccillo – Potere di riesame, amministrazione semplificata e “paura di amministrare” – 725
Stefano Villamena – La revoca del presidente del consiglio comunale: contributo alla individuazione della fattispecie – 751
Jacopo Vavalli – Concetti giuridici indeterminati, discrezionalità dell’amministrazione e sindacato giurisdizionale nell’esclusione dalle gare di appalto per gravi illeciti professionali – 777
Salvatore Raimondi – Considerazioni sulla disciplina delle specializzazioni forensi alla luce del D.M. 1 ottobre 2020, n. 163 – 807
Nicola Gullo – Notazioni sul regionalismo differenziato tra aspirazioni autonomistiche e solidarietà economico-sociale – 817
Valentina Prudente – L’utile attuazione dell’art. 116, co. 3, Cost. alla luce del principio di sussidiarietà – 837
Patrizia Accordino – Le “asimmetrie fiscali” tra Regioni italiane: stato dell’arte, criticità e prospettive – 853
Luca Dell’Atti – Effetti dell’autonomia differenziata sulla combinazione funzionale dei princìpi di sussidiarietà e leale collaborazione. Verso una riforma del regionalismo a Costituzione invariata? – 867
Andrea Napolitano – Il ruolo (imprescindibile) delle Camere per una corretta ed equa attuazione del regionalismo differenziato – 881
Claudia Bianca Ceffa – “Non basta dire intesa”. Ragionando sul principio di leale collaborazione fra Stato e Regioni nella prospettiva del regionalismo differenziato – 895
Giuseppe Carlo Ricciardi – Note sulla dimensione amministrativa del regionalismo differenziato – 919
Matteo Pressi – Autonomia regionale differenziata: un’occasione per ripensare l’area vasta – 907
Gaetano Armao – Note minime sulla disciplina della Regione siciliana sul procedimento amministrativo – 931

Abstract

Il ruolo della BCE nel complesso equilibrio tra tecnica e politica

di Antonella Sciortino

Il saggio affronta il tema del ruolo assunto dalla BCE nello svolgimento della politica monetaria che ha evidenziato non poche criticità sul piano della tensione tra tecnica e politica. Dopo aver ripercorso sinteticamente la nascita dell’Unione monetaria sin dall’idea del rapporto Verner del 1970 di creare una moneta unica e di conseguenza una Unione monetaria poi messa da canto per poi essere ripresa dall’allora Presidente della Commissione J. Delors che nel suo Rapporto (1989) tracciò le fasi in cui si sarebbe dovuta realizzare l’unione monetaria, il lavoro si focalizza sul ruolo assai complesso della BCE. L’indipendenza della BCE (art. 130 TFUE) viene analizzata all’interno del principio dell’indipendenza delle banche centrali nazionali e della compatibilità con il principio democratico che può trovare un primo componimento nella separazione tra autonomia nella individuazione dei fini e autonomia nella scelta dei mezzi con cui perseguirli. In questo senso almeno formalmente la BCE supera il test di compatibilità in quanto l’obiettivo del suo mandato viene individuato dalla fonte primaria sovranazionale nel mantenimento della stabilità dei prezzi escludendo a contrario altri obiettivi quali il sostegno all’occupazione o misure volte al superamento delle asimmetrie economiche tra gli Stati dell’Eurozona. Infine la parte centrale dello scritto si occupa dell’enlargement  of  functions della BCE, quale “custode della costituzione economica europea” che per fronteggiare la crisi finanziaria iniziata nel 2008 ha posto in essere e, in alcuni casi solo annunciato, operazioni non convenzionali (OMT, Q.E. solo per esemplificare) che hanno forzato l’equilibrio tra tecnica e politica e hanno riproposto con forza il problema della legittimazione democratica di un organo indipendente dal potere esecutivo e dal potere legislativo. Da qui un “dialogo fra giurisdizioni”(Tribunale costituzionale tedesco e Corte di giustizia dell’UE) segnato da importanti decisioni che hanno, fra le altre cose, evidenziato quanto sia difficile tracciare con il bisturi la linea di demarcazione tra politica monetaria (rimessa all’UE) e politica economica (rimessa agli Stati membri), ma anche quanto sia complesso affrontare il problema dei confini del sindacato giurisdizionale della CGUE di fronte ad atti caratterizzati da un alto tasso di tecnicismo. I temi che sono venuti in rilievo sono di grande spessore teorico e tutt’ora al centro di un intenso dibattito per cui possono solo essere avanzate delle ipotesi di studio come il possibile utilizzo della categoria della c.d. discrezionalità tecnica per cercare di affrontare il problema relativo al sindacato della CGUE dinanzi a materie squisitamente tecniche o mettere a punto strumenti di trasparenza e accountability della politica monetaria della BCE per cercare di arginare la mancanza di legittimazione democratica fermo restando il principio della sua indipendenza ed autonomia. Infine qualche accenno alle misure adottate durante l’emergenza pandemica.

The role of the ECB in the complex balance between technology and politics

by Antonella Sciortino

The essay deals with the issue of the role assumed by the ECB in carrying out monetary policy which has highlighted many critical issues in terms of the tension between technology and politics. After briefly tracing the birth of the Monetary Union, beginning from the idea of the Verner report of 1970 to create a single currency and, eventually, a Monetary Union which was put aside and then afterwards resumed by the then President of the Commission J. Delors, who in his Report (1989) wrote about the phases in which monetary union should have been achieved, the work focuses on the very complex role of the ECB. The independence of the ECB (Article 130 TFEU) is analyzed within the principle of the independence of national central banks and compatibility with the democratic principle which can find a first composition in the separation between autonomy in identifying purposes and autonomy in choice of the means by which to pursue them. In this sense, at least formally, the ECB passes the compatibility test as the objective of its mandate is identified by the primary supranational source in maintaining price stability while excluding other objectives such as employment support or measures aimed at overcoming asymmetries between the eurozone states. Finally, the central part of the report deals with the “ enlargement of functions “of the ECB, as “ guardian of the European economic constitution “which in order to face the financial crisis that began in 2008 has put in place and, in some cases only announced , unconventional operations (OMT, QE just to exemplify) that have forced the balance between technology and politics and have forcefully re-proposed the problem of the democratic legitimacy of a body independent of the executive and legislative powers. Hence a “ dialogue between jurisdictions “(German Constitutional Tribunal and EU Court of Justice) marked by important decisions that have, among other things, highlighted how difficult it is to draw the dividing line between monetary policy with a scalpel ( remittance to the EU) and economic policy (remittance to the Member States), but also how complex it is to tackle the problem of the boundaries of the judicial review of the CJEU in the face of acts characterized by a high rate of technicality. The issues that have come to the fore are of great theoretical depth and still at the center of an intense debate for which study hypotheses such as the possible use of the category of the so-called technical discretion to try to tackle the problem related to the CJEU’s trade union in purely technical matters or to develop instruments of transparency and accountability of the ECB’s monetary policy to try to stem the lack of democratic legitimacy without prejudice to the principle of its independence and autonomy . Finally, some hints to the measures taken during the pandemic emergency.

Potere di riesame, amministrazione semplificata e “paura di amministrare”

di Silvia Tuccillo

Le recenti riforme della p.a., varate per rispondere alla crisi economica determinata dall’emergenza pandemica, si sono innestate su un tessuto normativo già ricco di criticità. La spinta ormai continua sugli istituti di semplificazione, l’investimento sulla responsabilità come deterrente per le inefficienze dei funzionari pubblici e la crescente sfiducia nell’amministrazione stanno generando esternalità negative che soltanto un ripensamento di alcune linee interpretative ormai consolidate potrà riuscire a contenere. Lo scritto si propone, in particolare, di analizzare le potenzialità del potere di riesame come strumento per bilanciare, insieme ad altri istituti di recente conio, la riduzione di garanzie determinata da un investimento poco cauto sul silenzio assenso come rimedio avverso l’inerzia patologica della p.a.

Administrative review, simplification and “fear of making decision”

by Silvia Tuccillo

Recent administrative reforms, launched in response to the economic crisis determined by the pandemic, have grafted to a regulatory structure that is already full of critical issues. Simplification policies, enhancement of responsibility as a deterrent to public servant’s inefficiencies and growing mistrust in administration are generating negative externalities that need a radical rethink of some well-established interpretative legal lines. This paper aims to analyze the potential of self-defense power as a tool to balance, in combination with some recent legal institutions, the reduction of guarantees caused by a misguided use of silent assent as a remedy against the pathological inertia of public administration.

La revoca del presidente del consiglio comunale: contributo alla individuazione della fattispecie

di Stefano Villamena

 Il Testo unico degli enti locali del 2000 non si interessa direttamente del tema della revoca del Presidente del Consiglio comunale. Il presente contributo cerca pertanto di tracciare le linee fondamentali riguardo non solo all’organo cui dovrebbe essere attribuito il relativo potere, bensì ai presupposti su cui esso si fonda nonché ai limiti al suo esercizio. Nella parte finale del contributo si è poi cercato di ricostruire la natura del potere in esame, fondato sul venir meno del «rapporto di fiducia» con riferimento specifico ad inadempimenti istituzionali. Il potere di revoca è però pur sempre legato a scelte della maggioranza consiliare, da ciò è derivata un’esigenza di tutela in termini di riequilibrio a favore delle minoranze consiliari tramite l’ipotesi dell’abuso d’ufficio.

Revocation of the President of the City Council: evaluation of its features and legal boundaries

by Stefano Villamena

 The Legislative Decree no. 267/2000 about local authorities does not directly mention the President of the Municipal Council’s revocation in particular. This work aims to trace the fundamental requirements for revocation’s power, its limits, and to identify which body of the public administration is legitimate to exercise this power. Besides, this work also evaluates the nature of the revocation power, based on the loss of “institutional trust” concerning omissions or defaults upon administrative duties. The power under analysis is linked to the choices of the council majority from which derives the need for safeguards in favor of the council minorities, rebalancing their power through the hypothesis of abuse of office.

Concetti giuridici indeterminati, discrezionalità dell’amministrazione e sindacato giurisdizionale nell’esclusione dalle gare di appalto per gravi illeciti professionali

di Jacopo Vavalli

 La norma sui gravi illeciti professionali determina l’esclusione degli operatori economici dalle gare di appalto, con potenziali effetti anche per il futuro, utilizzando concetti indeterminati dal punto di vista semantico. Lo stato dell’arte in ambito giurisprudenziale è che la decisione escludente dell’amministrazione ai sensi dell’art. 80, comma 5, del Codice dei contratti pubblici sia la conseguenza dell’esercizio di un potere discrezionale, amministrativo o comunque tecnico, sindacabile solamente in caso di irragionevolezza o illogicità manifeste. Il presente lavoro, nell’analizzare la suddetta norma, mira a svolgere una indagine sistematica volta ad individuare i criteri, il più possibile oggettivi che possano garantirne una applicazione prevedibile. Lo studio perviene alla conclusione che nella relazione dialettica tra decisione amministrativa e sindacato del giudice amministrativo non vi è ragione di limitare tale sindacato ai profili di manifesta illogicità e irragionevolezza della decisione, come sembra orientata a fare la giurisprudenza. Un simile orientamento non solo non è giustificato sulla base del contenuto della norma, ma rischia di non garantire il perseguimento di quegli obiettivi di razionalità coerenza e certezza che sono immanenti al sistema giuridico.

Indefinite legal concepts, discretion of the administration and judicial review in the exclusion from calls for tenders due to serious professional offenses

by Jacopo Vavalli

The rule on grave professional misconducts, present in the art. 80, paragraph 5, of the Public Contracts Code, determines the exclusion of economic operators from tenders, with potential effects also for the future partecipation to the public tenders. The said rule is based on indeterminate concepts. The state of the art in the jurisprudence is that the exclusionary decision of the administration is the consequence of the exercise of a discretion power, administrative or technical, which can be reviewed by the administrative Court only in the event of manifest unreasonableness or illogicality. The study carries out a systematic investigation aimed to identifying the criteria, as objective as possible, that can guarantee a predictable application of the art. 80, paragraph 5, of the Public Contracts Code. The study comes to the conclusion that in the dialectical relationship between the administrative decision and the review of the administrative judge there is no reason to limit such a review to the profiles of manifest unreasonableness of the decision, as admini-806 Jacopo Vavalli strative jurisprudence seems oriented to do. Such an orientation is not justified on the basis of the content of the rule and is not able to guarantee the pursuit of the objectives of rationality, coherence and certainty which are immanent in the legal system.

Considerazioni sulla disciplina delle specializzazioni forensi alla luce del D.M. 1 ottobre 2020, n. 163

di Salvatore Raimondi

L’autore esamina le modifiche introdotte, in materia di specializzazioni forensi con il D.M. n. 163 del 2020 al regolamento approvato cinque anni prima con D.M. n. 144 del 2015, diverse disposizioni del quale erano state oggetto di annullamento con sentenza del TAR Lazio del 2016 in buona parte confermata dal Consiglio di Stato con sentenza n. 5575 del 2017. Il D.M. n. 163 prevede n. 13 settori nei quali si può conseguire specializzazione. Relativamente ai settori del diritto civile, diritto penale e diritto amministrativo si prevedono nel rispettivo ambito, 11, 7 e 8 indirizzi. La specializzazione si può conseguire attraverso la “comprovata esperienza” ovvero attraverso i “percorsi formativi”.

Considerations on the reform of the discipline of the specializations of Lawyers

by Salvatore Raimondi

The author examines the changes introduced, in the field of forensic specializations with the D.M. (Ministerial Decree) n. 163/2020 to the regulation approved five years earlier with D.M. n. 144 of 2015, which was partly annulled by the Lazio Regional Administrative Court in a ruling largely confirmed by the Council of State (C.S. 5575/2017). The D.M. 163/2020 contemplate 13 sectors in which specialization can be achieved. With regard to the sectors of civil law, criminal law and administrative law, 11, 7 and 8 addresses are envisaged. Specialization can be achieved through “proven experience” or through “training paths”.

Notazioni sul regionalismo differenziato tra aspirazioni autonomistiche e solidarietà economico-sociale

di Nicola Gullo

Il regionalismo differenziato delineato dall’art. 116, co. 3, Cost. prevede la possibilità di una profonda revisione del sistema regionale attraverso un procedimento legislativo rinforzato, che richiede la stipula di una previa intesa tra lo Stato e la Regione interessata. Il contributo esamina i diversi problemi interpretativi che riguardano l’applicazione di questa norma costituzionale, alla luce delle iniziative avviate da alcuni Regioni a statuto ordinario. Dall’analisi delle diverse questioni giuridiche, politiche e finanziarie che sono collegate alla realizzazione del modello del regionalismo differenziato, si evince la necessità di superare un approccio settoriale, basato su autonomi e separati accordi con le singole Regioni, per incardinare le proposte regionali nel contesto di una riforma generale dell’ordinamento, in modo da preservare l’unità della Repubblica e salvaguardare la solidarietà territoriale.

Remarks on differentiated regionalism between autonomous aspirations and economic and social solidarity

by Nicola Gullo

 The concept of differentiated regionalism, introduced in art. 116, paragraph 3, of the Constitution, allows for the possibility of a wide review of the regional system through a reinforced legislative process, following the prior stipulation of an agreement between the State and the concerned Region. This article examines the various problems of interpretation relating to the application of this constitutional rule, taking into account the initiatives of some Regions with ordinary statute. Moving from the analysis of different legal, political and financial issues of the differentiated regionalism, the article affirms the necessity of letting go of the sectoral approach, based on autonomous and separate agreements with individual Regions, in favor of adopting a general reform of the legal system which incorporates regional proposals, so as to preserve the unity of the Republic and safeguard territorial solidarity.

L’utile attuazione dell’art. 116, co. 3, Cost. alla luce del principio di sussidiarietà

di Valentina Prudente

L’articolo, prendendo spunto dalla vicenda relativa alla attuazione del regionalismo differenziato previsto dal terzo comma dell’art. 116 della Costituzione, propone una lettura dei nessi esistenti tra differenziazione regionale e sussidiarietà verticale. Tali nessi si apprezzano sia laddove la differenziazione regionale riguardi una particolare e diversa distribuzione di competenze legislative tra enti; sia laddove comporti l’allocazione di funzioni e compiti amministrativi in considerazione delle diverse caratteristiche degli enti riceventi. In questa prospettiva la differenziazione regionale si caratterizza in funzione attuativa della sussidiarietà e si pone in relazione con l’intero quadro costituzionale dei principi fondamentali che connotano il sistema delle autonomie territoriali.

Useful implementation of Art. 116.3 of the Constitution through the principle of subsidiarity.

by Valentina Prudente

The article, getting ideas from the matter relating to the implementation of differentiated regionalism provided by the third paragraph of Art. 116 of the Constitution, proposes a reading of links between regional differentiation and vertical subsidiarity. These links are valued both if regional differentiation concerns a particular and different distribution of legislative powers among entities; and whether if it involves allocation of administrative functions related to different characteristics of receiving entities. In this perspective, regional differentiation is characterized by implementation of subsidiarity and is related to the entire constitutional framework of fundamental principles that typify our system of territorial autonomies.

Le “asimmetrie fiscali” tra Regioni italiane: stato dell’arte, criticità e prospettive

di Patrizia Accordino

L’articolo approfondisce il “regionalismo differenziato” in ambito tributario evidenziando le difficoltà applicative derivanti dalla clausola di invarianza finanziaria contenuta nelle pre-intese già concluse, che preclude nuovi o maggiori oneri a carico della finanza pubblica. Il finanziamento di questi spazi di autonomia differenziata dovrebbe infatti, essere sostenuto dalle entrate delle Regioni che li richiederanno. Nondimeno, da una prima analisi dei preaccordi già formulati, sembra che le Regioni proponenti intendano tenere ferme le risorse all’interno del territorio delle stesse e condizionarle a favore di chi in essa risiede, prefigurando, pertanto, il concreto rischio di intaccare i diritti sociali fondamentali, a causa della ricaduta sulla distribuzione delle risorse complessive tra Regioni. Le regole di contribuzione al sostenimento della spesa pubblica vigenti sono, tuttavia, ancora basate sul “binomio” di valori costituzionali riconducibili al generale dovere di solidarietà economica e al principio di capacità contributiva. È, dunque, chiara l’esigenza di preordinare la concreta operatività del regionalismo differenziato – per preservare la neutralità e il mantenimento della coesione sociale – alla attuazione dei predetti principi. È anche essenziale promuovere alcuni spazi di autonomia tributaria che assicurerebbero alle Regioni italiane la concreta possibilità di finanziare le nuove condizioni senza alterare l’equilibrio complessivo.

“Tax asymmetries” among Italian Regions: state of the art, critical issues, and perspectives

by Patrizia Accordino

 The article investigates the “asymmetrical regionalism” in the field of taxation, highlighting the difficulties in its application deriving from the financial invariance clause contained in the pre-agreements already concluded, which precludes new or greater burdens on public finance. Financing these spaces of asymmetrical autonomy should, indeed, be supported by the revenues of the Regions requesting them. Nonetheless, an initial analysis of the pre-agreements already signed shows that the proposing Regions intend to keep resources within their territories conditioning them in favour  of those who live there also envisaging the real risk of affecting fundamental social rights, due to the impact on the distribution of overall resources among all the Regions. However, the rules of contribution to public expenditure in force are still based on the “combination” of constitutional values tracing back to the general duty of economic solidarity and the principle of ability to pay. It is, therefore, clear that the real application of asymmetrical regionalism – to preserve neutrality and maintain social cohesion – should be subordinated to the implementation of the aforementioned principles. Furthermore, promoting certain spaces of tax autonomy, eventually ensuring Italian Regions an effective possibility of financing the new conditions, without affecting the overall equilibrium, is essential.

Effetti dell’autonomia differenziata sulla combinazione funzionale dei princìpi di sussidiarietà e leale collaborazione. Verso una riforma del regionalismo a Costituzione invariata?

di Luca Dell’Atti

 Sussidiarietà e leale collaborazione sono due principi nati nella prassi, poi dotati di fondamento costituzionale, il cui studio rappresenta un ottimale punto di osservazione per descrivere le evoluzioni oscillanti del regionalismo italiano. Il combinato operare dei due principi, infatti, poiché consente la gestione flessibile dei rapporti Stato-Regioni, ne facilita uno svolgersi cooperativo e non conflittuale assicurando il simultaneo rispetto dei principi di unità e autonomia di cui all’art. 5 Cost. Questo contributo analizza il possibile impatto dell’attivazione della clausola di maggiore autonomia (art. 116, c. 3 Cost.) sull’assetto delle relazioni inter-governative delineando due scenari a seconda che l’autonomia differenziata venga infine realizzata a) per le tre Regioni settentrionali già ad uno stadio avanzato del relativo iter (Lombardia, Veneto ed Emilia Romagna), o b) per un ampio numero di Regioni – quasi tutte le Regioni hanno già avviato iniziative in tal senso. Dallo scenario sub a) deriverebbe la recessione dei moduli di cooperazione multi-laterale in ragione della necessità di gestire in via bi-laterale ed informale i rapporti centro-periferia; in quello sub b), le logiche della competizione, ancorché declinate su una dimensione più ampia, potrebbero creare una frattura nel fronte regionale unitario. In entrambi i casi, dunque, l’attivazione della clausola di maggiore autonomia potrebbe rappresentare un ostacolo all’evoluzione in senso collaborativo delle relazioni multi-livello.

The Effects of “Further Autonomy” on the Principles of Subsidiarity and Loyal Cooperation. Again a Non-formal Constitutional Reform of the Regionalism?

by Luca Dell’Atti

The principles of subsidiarity and loyal cooperation were born in praxis and then endowed with a constitutional foundation. Their study is an optimal observation point for describing the evolution of Italian regionalism. In fact the two principles –since they enable the State-Regions relations to be managed in a flexible manner– facilitate a cooperative development by ensuring the simultaneous respect of the principles of unity and autonomy as set out in Article 5 of the Constitution. We analyze the possible impact of the “further autonomy clause” (Art. 116, par. 3 of the Constitution) on the structure of inter-governmental relations (IGR), outlining two scenarios depending on whether the clause is finally implemented a) for the three northern Regions that are already at an advanced stage of the process (Lombardia, Veneto and Emilia Romagna), or b) for a large number of Regions –almost all of which have already started  initiatives in this direction. Scenario a) would result in the recession of multi-lateral cooperation models due to the need to manage IGR bi-laterally and informally; in scenario b), the logic of competition, even declined on a broader scale, could break up the unitary regional front. In both cases, therefore, the activation of the clause could hinder the co-operative evolution of multi-level relations.

Il ruolo (imprescindibile) delle Camere per una corretta ed equa attuazione del regionalismo differenziato

di Andrea Napolitano

 Il percorso del regionalismo differenziato che si è sviluppato negli ultimi mesi in Italia ha avuto, come è noto, quali protagonisti istituzionali le singole Regioni da un lato e, dall’altro, il Governo, circostanza che ha, di fatto, relegato il Parlamento ad un ruolo secondario. Proprio il ruolo che si intende attribuire a quest’ultimo ha rappresentato uno degli aspetti maggiormente discussi in dottrina. Il presente lavoro, muovendo dalla marginalizzazione delle Camere riscontrata nel percorso di differenziazione iniziato da Veneto, Lombardia ed Emilia, intende indagare la necessità di attribuire al Parlamento un ruolo centrale nel procedimento di approvazione della c.d. legge ad autonomia negoziata al fine di garantire la salvaguardia dell’unità nazionale ed effettuare una approfondita analisi dei possibili impatti sui livelli essenziali delle prestazioni concernenti i diritti civili e sociali che devono essere assicurati su tutto il territorio nazionale. Allo stesso modo si cercherà di evidenziare l’opportunità di una legge “attuativa” della disposizione costituzionale, con la quale fissare, in maniera puntuale, principi e criteri da far rispettare alle Regioni che intendono iniziare il percorso per la differenziazione ma anche, e soprattutto, disciplinare un’ipotetica fase di monitoraggio e, in casi eccezionali, di riallocazione, a livello statale, di funzioni e risorse devolute in precedenza.

The (essential) role of the Parliament for a correct and equitable implementation of differentiated regionalism

by Andrea Napolitano

The path of differentiated regionalism that has developed in the recent months in Italy has had, as is well known, as institutional bodies, the individual Regions on the one hand and the Government on the other, a circumstance that has, in fact, relegated the Parliament to a secondary role. Indeed, the role that is intended to be attributed to the latter has represented one of the most discussed aspects in the doctrine. This work, starting from the marginalization of the Chambers, found in the differentiation process initiated by Veneto, Lombardy and Emilia, intends to investigate the need to give the Parliament a central role in the approval process of the so-called negotiated autonomy law in order to ensure the safeguarding of national unity and carry out an in-depth analysis of the possible impacts on the essential levels of services, concerning civil and social rights that must be ensured throughout the national territory. In the same way, this paper will try to highlight the opportunity of an “implementing” law of the constitutional provision, pursuant to which to set, in a timely manner, principles and criteria to be enforced by the Regions that intend to start the process of differentiation but also, and above all, regulate a hypothetical phase of monitoring and, in exceptional cases, of reallocation, at the state level, of functions and resources previously devolved.

“Non basta dire intesa”. Ragionando sul principio di leale collaborazione fra Stato e Regioni nella prospettiva del regionalismo differenziato

di Claudia Bianca Ceffa

 L’articolo si propone di evidenziare un profilo, ancora poco esplorato, di inadeguatezza del richiamo dell’art. 8, comma 3, Cost. in relazione alla procedimentalizzazione  dell’approvazione legislativa dell’intesa fra Stato e Regioni, necessaria ai fini dell’attuazione del regionalismo differenziato. Tale disposizione porta, infatti, con sé il bagaglio della relativa giurisprudenza costituzionale che ha constatato la natura politica, quindi insindacabile, della decisione del Governo di avviare il confronto ai fini del raggiungimento di un’intesa con le confessioni acattoliche. Quest’ultima, invece, nell’ambito del regionalismo differenziato, dovrebbe inserirsi nel diverso assetto che ispira il Titolo V Cost., all’interno del quale i rapporti tra Stato e Regioni sono connotati dal principio di leale collaborazione.

“Agreement it’s not enough”. Reasoning about the principle of loyal collaboration between the State and the Regions in the perspective of differentiated regionalism

by Claudia Bianca Ceffa

 Abstract (eng): The article aims to highlight a profile, still unexplored, of the inadequacy of the reference to art. 8, paragraph 3, of the Constitution in relation to the proceduralization of the legislative approval of the agreement between the State and the Regions, necessary for the implementation of differentiated regionalism. This provision, in fact, brings with it the baggage of the related constitutional jurisprudence, which has established the political nature, therefore unquestionable, of the Government’s decision to start discussions in order to reach an agreement with non-Catholic confessions. The latter, on the other hand, in the context of differentiated regionalism should fit into the different structure that inspires Title V of the Constitution, within which the relations between the State and the Regions are characterized by the principle of loyal collaboration.

Note sulla dimensione amministrativa del regionalismo differenziato

di Giuseppe Carlo Ricciardi

 L’articolo prende in considerazione la dimensione amministrativo-funzionale sottesa al regionalismo differenziato. La riflessione sulle funzioni conduce a conseguenze rilevanti sia rispetto alle istituzioni del governo locale, sia in ordine al trasferimento delle risorse umane e finanziarie correlate all’esercizio delle funzioni. Sul tema occorre un ripensamento alla luce dell’argomento decisivo legato alla co-essenzialità tra i concetti di autonomia e differenziazione, avente riflessi anche sull’organizzazione delle amministrazioni accolta nella nostra Costituzione.

Remarks on the administrative dimension of differentiated regionalism

by Giuseppe Carlo Ricciardi

 The article takes into account the administrative and functional dimension of the differentiated regionalism. The functional-centred vision leads to relevant implications with respect to the local government institutions and the deployment of human and financial resources related to the exercise of the administrative tasks. On this topic it is necessary a rethinking in the light of the decisive argument linked to the co-essentiality between the concepts of autonomy and differentiation, having repercussions also on the organization of administrations accepted in our Constitution.

Autonomia regionale differenziata: un’occasione per ripensare l’area vasta

di Matteo Pressi

Lo scritto analizza il tipo di relazione esistente fra la procedura di attribuzione alle Regioni di “forme ulteriori di autonomia” ai sensi dell’art. 116 c. 3 Cost. e l’attuale struttura istituzionale di Enti di area vasta. In particolare, l’articolo mostra, analizzando gli aspetti particolarmente critici, che Province e Città metropolinane, come riformate dalla “riforma Delrio” non possono sostenere gli effetti che il regionalismo differenziato è destinato a produrre sugli Enti di area vasta.

Differentiated regional autonomy: an opportunity to rethink the vast-area

by Matteo Pressi

This paper aims to highlight the relationship existing between the procedure of attribution to the Regions of «further forms and particular conditions of autonomy», pursuant to art. 116, paragraph 3, of the Constitution, and the current institutional structure of vast-area entities. In particular, the article intends to underline how, to date, the structure of the Provinces and Metropolitan Cities, as defined by the “Delrio reform”, is unsuitable for sustaining the repercussions that differentiated regionalism is destined to produce on vast-area entities, outlining the particularly critical issues.

Note minime sulla disciplina della Regione siciliana sul procedimento amministrativo

di Gaetano Armao

 L’Autore descrive la recente riforma della disciplina regionale siciliana sul procedimento amministrativo muovendo da una ricostruzione degli spazi di autonomia normativa della Regione alla luce della giurisprudenza costituzionale, dandone una valutazione largamente positiva.

Some remarks on norms enacted by the Sicilian Region on administrative procedure

by Gaetano Armao

The Author describes the reform of regional law on administrative procedure enacted in Sicily approaching the topic from the perspective of the “spaces” of normative  authonomy  given to the Region. To this extent it is taken into account the Constitutional Court case law. The Author givese a positive evaluation  of the reform.

L'articolo Nuove Autonomie 3-2020 proviene da Nuove Autonomie.

INDICE
DOTTRINA

Guido Corso – Straniero, cittadino, uomo. Immigrazione ed immigra ti nella giurisprudenza costituzionale – 377
Enzo Maria Marenghi – Affidamento di servizi pubblici senza gara tra interesse comune e cooperazione – 395
Giovanni Pitruzzella – Farmaci e antitrust – 411
Filippo Salvia – Sulla nozione di urbanistica e su alcuni suoi corollari – 425
Maria Alessandra Sandulli – L’istituto del silenzio assenso tra semplificazione e incertezza – 435
Antonella Sciortino – Il ruolo dei Parlamenti nazionali di fronte alla nuova governance economica europea – 445
Lucia Corso – Perché le neuroscienze attirano i giuristi e cosa invece i giuristi potrebbero insegnare ai neuro-scienziati.
Qualche osservazione preliminare – 469

GIURISPRUDENZA

Fabio Saitta – Sulle circolari amministrative e sul loro trattamento processuale – 487
Maurizio Gemelli – L’indipendenza dell’avvocato tra tutela costituzionale e dimensione sovranazionale – 503

Abstracts

ALIEN, CITIZEN, MAN – IMMIGRATION AND IMMIGRANTS – IN THE CONSTITUTIONAL COURT’S DECISIONS

by Guido Corso

The articles discusses the legal conditions of regular and illegal aliens in Italy. After analyzing the actual size of State sovereignty in the context of immigration policies and the distribution of powers among central and regional governments, the article focuses on the most sensitive constitutional issues referring aliens, such as criminal procedure guarantees, social rights, right to family reunion. The author then concludes suggesting some additional burdens on policy makers resulting from constitutional principles which apply to both regular and irregular aliens.

AWARD OF PUBLIC SERVICES WITHOUT COMPETITION BETWEEN COMMON INTEREST AND CO-OPERATION

by Enzo Maria Marenghi

Basics and the norm of European law legitimate the direct commitment of public service. The waiver works as a function of the common interest of public authorities’s system, according to principles of cooperation and adequacy.

MEDICINES AND ANTITRUST

by Giovanni Pitruzzella

Preliminarily, this article examines the most important elements of competition in the pharmaceutical industry. It focuses on the particular structure of the demand of medicines – in which doctors, patients, and the national health systems interact -, and the two forms of competition we observe in this industry. As to the latter, on the one hand, there is the competition between originator companies based on research and development and the marketing of new products (the so-called dynamic competition). On the other hand, the competition between originators and generic companies arising once the patent of the blockbuster has expired and the latter can enter the market with their equivalent products at a lower price (the so-called price or static competition). Then, the article provides an overview of the recent activity of the European Commission in the sector, mainly focusing on the 2009 Sectorial Inquiry and the AstraZeneca case, whose decision has recently been confirmed by the EU Court of Justice. Finally, the enforcement activity of the Italian Competition Authority is analyzed. In particular, the article describes the recently closed “ratiopharm/Pfizer” case. The investigation concerned an exclusionary conduct by Pfizer Health A.B., Pfizer Italia S.r.l., and Pfizer Inc. in relation to an illegitimate extension of patent duration in order to delay generic entry. In the case, the behavior of Pfizer consisted in the submission to the European Patent Office in 2002 and to the Italian Patent Office (UIBM) in 2009 of objectively misleading representations so as to lead those offices to grant it a divisional patent and a SPC to which Pfizer was not entitled. Such a behavior had the effect of extending the intellectual protection of Pfizer blockbuster – xalatan – in Italy, delaying the entry into the Italian market of its generic version. In the final section, another investigation opened by the ICA is examined. It relates to thealleged agreement involving Hoffmann-La Roche Ltd, Novartis AG, Genentech Inc., Roche S.p.A., and Novartis Farma S.p.A. aimed at excluding in Italy the ophthalmic use of Avastin, marketed byRoche, in order to advantage the sales of Lucentis, marketed by Novartis. According to several scientific studies Avastin and Lucentis are equivalent: however, Lucentis is far more expensive than Avastin. As Roche did not require an “onlabel” registration of Avastin for ophthalmic use, only Lucentis is currently reimbursed by the Italian healthcare system: as a consequence, the claimants argue that the damages of the alleged carte may amount to several hundreds of EUR millions per year. If established, the cartel could constitute an infringement of Article 101 of the Treaty of the Functioning of the European Union, which cartels and restrictive business practices.

URBAN PLANNING AND HIS COROLLARIES

by Filippo Salvia

Urban Planning is different from other related disciplines – which also have as their object the use and control of parts of the land – because it’s called to best meet all the interests in the land taken as a whole, in order to promote the orderly development of settlements and communities. But City Planning, which concerns the entire municipal land,, affects an organized territory, where are embedded many interests, which also have solid legal guarantees and a constitutional basis. For this reason, there is a need to engage in City Planning different public and private stakeholders. The legislation appears to provide, on this point, several solutions: participation in the process planners, through observations and oppositions; planning contracted; planning by paracontractual procedures typical of coordination between administrations.

THE MECHANISM OF THE CONSENT BY SILENCE BETWEEN SIMPLIFICATION AND UNCERTAINTY

by Maria Alessandra Sandulli

The paper calls into question the real usefulness of the mechanism of the consent by silence and its conformity to the simplification objectives imposed by the European Union, in the light of the uncertainty that characterises its regulatory framework and the case law on the consequences on the possible verification of the lack of the conditions to be met for the request to be accepted. The A. wanders about the real advantages of the mechanism, also in relation to the fact that an increased protection is guaranteed in relation to the more classical silence “inadempimento” of the public administration.

THE ROLE OF NATIONAL PARLIAMENTS IN FRONT OF THE NEW EU ECONOMIC GOVERNANCE

by Antonello Sciortino

This paper addresses the issues of the role of National Parliaments in decision-making regarding to public finance and fiscal policy within the framework of the new European economic governance instruments. Although these tools seem to leave few influence to National Parliaments, many other tools can be enhanced or introduced in order not to marginalise the role of Parliament and not to exclude it from the control of Government decisions concerning EU economic governance (such as enhancement of the Parliament monitoring function of public finance trend control and the elaboration of possible remedies in case of deviation from the expected parameters).

WHY LAWYERS ARE ATTRACTED TO NEUROSCIENCES AND WHAT COULD LAWYERS TEACH TO NEUROSCIENTISTS.

SOME PRELIMINARY OBSERVATIONS

by Lucia Corso

The essay discusses the more and more intense interest among lawyers for topics related to neuroscience and advances some explanations for such an interest. In particular, three main reasons are prospected which are captured under the labels of expectation of certainty, control desire and genuine curiosity for the human being. The essay then advances the claim that although those interests may be authentic, in some cases they are ill-directed. Lawyers may have also something to explain to neuroscientists.

THE INDEPENDENCE OF THE LAWYER BETWEEN CONSTITUTIONAL PROTECTION AND SUPERNATIONAL DIMENSION

by Maurizio Gemelli

The paper, after having briefly run over the most significant steps on the independence of the lawyer, starts to examine the profiles of constitutional protection of the right of defence in the Italian system and then it deals with the supernational front, particularlu concerning the effectivity of the legal aid, analysed through the magnifying glass of the sentences of the European Court of Human Rights. The treatment then recalls and develops, also given examples of paradigmatic events, the themes of the social function of the lawyer and its related coordinates, also within the limits of the law of the European Union. It also pays a more detailed attention of the lawyers on the undelayable need of new cultural horizons, preliminary to the birth of a new social responsibility.

L'articolo Nuove Autonomie 3-2012 proviene da Nuove Autonomie.

INDICE

Editoriale di Giuseppe Verde – 3

DOTTRINA

Francesco Astone – Il recepimento della direttiva ricorsi: profili problematici delle scelte operate dal legislatore nazionale – 7
Marcello Cecchetti – Le riforme costituzionali del 1999-2001 sulla forma di stato dieci anni dopo – 35
Alfonso Celotto – Convenzione europea dei diritti dell’uomo “e”/“o” Carta di Nizza – 45
Mario Serio – Riorganizzazione del Sistema di Giustizia Sportiva e funzione nomofilattica delle Corti Federali di ultima istanza – 57
Mario R. Spasiano – Linee evolutive del rapporto politica-amministrazione tra esigenze di continuità e tentazioni di contiguità – 71
Maria Cristina Cavallaro – La responsabilità dell’amministrazione per omessa vigilanza sull’attività urbanistico edilizia – 93
Gregorio De Vinci – Procedimenti comunitari e amministrazioni nazionali operanti in funzione comunitaria – 115
Giuseppe Martinico – Dalla nozione alle tipologie: appunti sul diritto delle fonti nell’ordinamento dell’Unione Europea – 141
Antonio Leo Tarasco – Amministrazione di qualità e controlli efficaci: un’endiadi possibile nella nuova “azione per l’efficienza”? – 167

GIURISPRUDENZA

CORTE COSTITUZIONALE – Sentenza 16 luglio 2009, n. 236 con nota di Laura Lorello, Ancora un tassello per la valenza costituzionale del principio della tutela del legittimo affidamento? – 203
CORTE COSTITUZIONALE – Sentenza 14 gennaio 2010, n. 4 con nota di Antonella Sciortino, La corte ha detto sì alla referenza di genere. Brevi riflessioni sulla rappresentanza politica di genere – 209

OSSERVATORIO PARLAMENTARE ARS – 219

RASSEGNE

Rassegna delle decisioni del Consiglio di Stato – Speciale in tema di efficacia del provvedimento amministrativo limitativo della sfera giuridica dei privati di Salvatore Dettori – 249
Rassegna della giurisprudenza del Consiglio di Giustizia amministrativa Di Paola Savona – 263
Rassegna della giurisprudenza dei Tribunali amministrativi regionali Speciale in tema di efficacia del provvedimento limitativo della sfera giuridica dei privati di Sara Forasassi – 275

Abstract

THE IMPLEMENTATION OF THE EU “RECOURS” DIRECTIVE: PROBLEMATIC PROFILES OF CHOISES BY THE NATIONAL LEGISLATOR
by Francesco Astone

The market of public contracts has become perhaps the most important in Europe: a market where conflicting interests are measured uninterruptedly not only in substantive terms but also in terms of legal protection. The innovations of Directive no. 66/2007, and the legislative decree implementing the EU directive, seems to be able to revise the terms of legal protection in public procurement.

THE CONSTITUTIONAL REFORMS ON THE FORM OF STATE OF 1999-2001 AFTER A DECADE. Sketching out an introduction for a debate to trace out a balance of these ten years
by Marcello Cecchetti

The “federalizing” process of the Italian form of State (l. cost. n. 1/1999, l. cost. n. 2/2001 e l. cost. n. 3/2001) moves from the debates of 1997 Joint Parliamentary Committee headed by MP D’Alema. The reforming process of the Italian Constitution is characterized by two main 44 Marcello Cecchetti coordinates: empowering citizens in determining the political process inside representative institutions (the direct election of Regional President and the reshaping of the institutional Regional architecture); shortening the distance between citizens and “public powers” (a major role had to be given to local administrations n organizing and performing public functions – a sort of development of the cd. Bassanini reforms, known also as “administrative federalism without changing the Constitution”). The federalizing process aimed at: stabilizing regional governments; widening the politicaladministrative role of local administrations (realizing an authentic institutional pluralism); enhancing the democratic standards through the tools of subsidiarity; reducing State functions and administrative intervention; reducing, simplifying and rationalizing State administration. None of these macro-objectives has been reached. The Italian Constitution is being implemented as no change has been occurred since 1947. The national interest clause is no more a part of our Constitutional framework but everyone (the legislators, the public administration and the courts, also the Constitutional Court) is acting like it still is. The central role for National Laws is no more part of the Italian Constitution but the implementation of the constitutional reforms has determined a framework of relations between the National and Regional Laws that is very similar to the former one (see for example the cases of “cross-sectional” legislative fields; of the “subsidiary” legislative power; of the strict interpretation given to the “leftover” legislative power of the Regions). The State is still enacting legislation as there is a sort of regional legislative power of “implementation” of national laws (and the Constitutional Court has still not directly faced this question, allowing this asset). The asset of secondary normative power, formally build around a strict division of fields (art. 117.6 Cost.), is persistently reversed conferring to administrative bodies of the State public functions of normative kind, using the clause that the acts adopted in the exercise of these functions “have no secondary normative nature”. The State power of “direct and coordinate” is rising and rising again. The limit of the “harmony with the Constitution” posed on regional statutory autonomy by the Constitutional Court; the position of Local Administrations; the presence of old instruments of inter-institutional coordination (the “System of the Conferences”, still disciplined by d.lgs. n. 281/1997); the lack of financial autonomy of Local and Regional Administrations, are all expressions of a “living Constitution” that is very close to the one that was into force until 1999.
Which are the reasons for the failure of the federalizing process? Are the objectives of the process? Are the tools designed to reach them? Are the legislative and political interpretation of the implementation of the reform? The main problem is certainly the lack of authentic political will to realize the reform. The Constitution was abandoned to the Constitutional Court. The Court has been called to solve the conflicts between the State and the Regions, often without no other landmarks than the political will of opposition. What can be the route for the future? It is of the outmost importance a reflection on the implementing tools which have to be set up. An important step would be the implementation of financial autonomy. But art. 119 Cost. and its implementation cannot by itself lead to the realization of the form of State (federal or regional) designed with the reforms of 1999-2001. It is necessary a political and cultural will to understand the potentials and the targets of those reforms. Otherwise the federalizing process remains a mere utopia.

EUROPEAN CONVENTION OF HUMAN RIGHTS “AND”/”OR” THE CHARTER OF NICE
by Alfonso Celotto

The relationship between the Charter of Nice and the European Convention of Human Rights may be approached either from a national or an international perspective. The present paper will approach this matter from an international perspective, examining the relationship between and contrasts within the two Conventions, without analyzing their impacts on the national law. The choice of the conjunction – ‘and’ or ‘or’ – is an important issue, since it has implications for how one reads the interrelationship between the two Conventions. In the former case, we can consider the Conventions having a parallel course, while in the latter it would be divergent. Although there are several arguments on behalf of both interpretations, parallel or divergent, if we look at the issue more deeply it has to be concluded that at the present stage the two Conventions have taken a parallel path. Nevertheless, this is a provisional conclusion, rebus sic stantibus, being the community and the conventional process continuously in evolution.

THE NEW FRAMEWORK OF ITALIAN SYSTEM OF SPORT JUSTICE
by Mario Serio

This essay purports to explore the new framework which characterizes the most influential legal institutions operating within Italian sport system following the Italian Olympic Committee’s recent resolution to set up two novel bodies regulating disputes between Federations and members (Alta Corte e Tribunale arbitrale per lo sport). The research aims at establishing a satisfactory dividing line between Courts functioning inside Federations and the new organisms instituted by the Olympic Committee, underlining the fundamental, leading role that the former still play in the determination and interpretation of the rules applicable to the relationship between Federations and their members. On the other hand, it is pointed out that the Alta Corte’s set of powers consists mainly of the drafting of a coherent body of rules applicable in all the interstices of sports relationship.

THE EVOLUTION OF THE RELATIONSHIP BETWEEN POLITICS AND ADMINISTRATION, BETWEEN NEEDS OF CONTINUITY AND TEMPTATIONS OF CONTIGUITY
by Mario R. Spasiano

This paper takes as its starting point the analysis of the evolution of the relationship between politics and administrative activity in Italy: since Cavour’s model – which recognized to the Minister (political organ) also the role of chief of administration – through the seventies reforms with the public management institution, until the present situation where we have a separation (at least on the face of it) between direction duty (politics) and management duty (administration). The author points out how, in this context, the conviction that administrative efficiency requires the establishment of a strong trust relationship between political organs and management has emerged, with the consequence that – in absence of objective criteria – the management valuation is only based on the trust principle, in fact unquestionable. The paper draws attention to the typical characteristics of political and administrative activities, from which the obsolescence of the traditional model founded on the complete separation between the two functions
results: hence, the author concludes proposing a dialogic relationship, based on continuity, between politics and administration, paying attention not to convert it in contiguity. To this end the trust principle, which characterizes the relationship between political organs and management, has to be considered an element objectively valuable, even in judicial terms. In the end, the work analyses the most relevant novelties resulting from the recent public administration reform (d.lgs. n. 150/2009), focusing on the positive and negative aspects about politics and administration relationship.

PUBLIC ADMINISTRATION’S LIABILITY FOR FAILING BUILDING CONTROL
by Maria Cristina Cavallaro

This paper analyzes the liability in which may incur Public Administration that fails to carry out building control. According to case law, public administration may be liable in respect of damages suffered by a landowner neighbor to a land where it was illegally built, but not for the damages caused to the other people or to the community. In this last case, we suggest that the authority, which failed to control, may be considered responsible for environmental damages.

COMMUNITY PROCEDURES AND NATIONAL ADMINISTRATIONS ENGAGED COMMUNITY TASKS
by Gregorio De Vinci

In the original setting of the Treaties the EU, policy-making has been entrusted, mostly, governments, according to a model based on direct\indirectly execution, that, following the gradual expansion of areas of competence of the Union and the enlargement process, no longer accurately represents the multiple forms of the administrative power. The terminology currently used to describe the administrative procedures is highly diverse: multi-level governance, networks of governments, regulatory process, are all expressions that have a common reference to a polycentric system, not monistic, not hierarchically ordered, which assume greater importance, now the EU institutions, national governments now, according to the interactions that in turn trigger between them. The result is a patchwork of relations between EU and national administrations, which are realized through connections and composite variables, based on the c.d. sector by sector approach, which takes into account, from time to time, the Community’s purposes.
At EU level we must therefore define an administration that operates according to a variety of organizational types and procedural, in which next to the Community institutions ‘traditional’ are growing in importance other devices, such as committees of comitology, European agencies, the independent authorities and private entities that contribute to administrative functions. On the domestic side, however, the increasing complexity of Community influence the organizational structure of national administrations, going to also affect the territorialization of European policies, caused by the processes of decentralization under way in Member States. Then, becomes essential to describe how they operate the national administrations involved in administrative proceedings falling within the Community and in what models is the transition between the administrations of Member States and EU in the sequences of procedure in the pursuit of its own Community. In a context of synthesis, are relevant, first, the topic of European administrative procedure and, then, existing connections and related figures in composition between national and EU, which derive different types of decision making.

FROM THE NOTION TO THE TYPOLOGIES: SHORT REMARKS ON THE LAW OF THE LEGAL SOURCES IN THE EUROPEAN UNION LEGAL ORDER
by Giuseppe Martinico

This paper aims at giving a brief overview of the legal sources system in the European Union. After investigating the different meanings of the tricky formula “sources of law”, the author moves to the analysis of the classic legal instruments of the EC law. Finally, the last part of the work is focused on the changes introduced in this field by the Reform Treaty

THE “EXTERNAL AUDIT” AUTHORITIES, DIFFERENT FROM THE NATIONAL AUDIT COURT (CORTE DEI CONTI), THAT CONTROL PUBLIC ADMINISTRATION’S ACTIVITIES
by Antonio Leo Tarasco

This study analyses the “external audit” authorities, different from the National Audit Court (Corte dei Conti), that control Public Administration’s activities. The objective is to measure the effectiveness of the current external control system, considering both its political and legal effects (the latter concerning either improvements to the administrative system, or legal sanctions). The research aims to monitor and measure the results of the control procedures in place. The author specifically examines powers and duties of the Public Service Inspectorate (Ispettorato per la funzione pubblica), of the Anti-corruption and Transparency Department (Servizio anticorruzione e trasparenza), as well as of the suppressed Central Tax Inspectors Department (Se.c.i.t.), by comparing them to the inspection powers of the income tax officers. This analysis concludes that there is a need to further investigate how the current external control bodies can be combined into a single administrative authority that monitors Public Administration’s management. The National Audit Court should maintain its own control on such authority, thus representing the primary guarantor of the proper functioning of both internal controls and external control systems on the Public Administration.

L'articolo Nuove Autonomie 1-2010 proviene da Nuove Autonomie.

Indice
Dottrina

LUIS FEDERICO ARIAS – La justicia argentina frente a la transformación social – 595
FRANCISCO BALAGUER CALLEJÓN – El Estado Autonómico en el contexto de la integración europea. Un comentario a la STC 31/2010, de 28 dejunio – 615
MARIA DE BENEDETTO – Qualche appunto sui rapporti tra morale, economia e diritto in una prospettiva giuspubblicistica – 649
ORNELLA SPATARO – La disciplina sulle energie rinnovabili nella dinamica delle fonti del diritto. La legislazione regionale nella morsa della sussidiarietà? – 697
MARIA TERESA DENARO – Soggetti deboli, soggetti indeboliti e diritti fondamentali: spunti e riflessioni – 727

Giurisprudenza

SENTENZA 18 ottobre 2010 n. 299 – Pres. Amirante – Red. Tesauro – Pres. Cons. Ministri – Regione Puglia con nota di ANTONELLA SCIORTINO, «Volevamo braccia, sono arrivati uomini». Note a margine della sentenza della Corte costituzionale n. 299 del 2010 – 763
GUIDO CORSO – L’ordinamento della giustizia amministrativa in Sicilia – 771
MARIA IMMORDINO – Qualche riflessione sul C.G.A. a margine del libro di Salvatore Raimondi – 775
ANTONIO SAITTA – Riflessioni sul libro di Salvatore Raimondi – 783
FABIO SAITTA – Divagazioni sul sistema di giustizia amministrativa siciliano e sul giusto processo (rileggendo un recente libro di Salvatore Raimondi) – 787

Rassegne

Rassegna della giurisprudenza del Consiglio di Stato Speciale in tema di danno da ritardo di SALVATORE DETTORI – 797
assegna della recente giurisprudenza del Consiglio di Giustizia amministrativa per la Regione Sicilia (settembre-dicembre 2010) di PAOLA SAVONA – 811
Rassegna della giurisprudenza dei Tribunali amministrativi regionali Speciale in tema di danno da ritardo di SARA FORASASSI – 823

Osservatorio Parlamentare Regionale – 837

SALVATORE DI GREGORIO – Il contenzioso costituzionale sui criteri di riparto tra Stato e Regione del gettito dei tributi erariali – 853

Abstract

LA JUSTICIA ARGENTINA FRENTE A LA TRANSFORMACIÓN SOCIAL
by Luis Federico Arias

El presente trabajo presenta un análisis acerca de los cambios verificados en las decisiones del Poder Judicial argentino frente a la transformación social de ese país en las últimas décadas. En particular, se destacan los avances jurisprudenciales de la Corte Suprema de Justicia de la Nación, en la protección de los derechos fundamentales y el abandono de ciertos rigorismos formales, por parte de ese Tribunal, para favorecer el acceso a la justicia de los sectores más vulnerables. Antecedentes del Dr. Luis Federico Arias:
• Abogado y Especialista en Derecho Administrativo, egresado de la Universidad
Nacional de La Plata, donde también cursó sus estudios de Doctorado.
• Ejerció como asesor en diversos ámbitos de la Administración Nacional, Provincial
y Municipal.
• Actualmente es Juez en lo Contencioso Administrativo del Departamento Judicial
La Plata y Vicepresidente de la Asociación Bonaerense de Derecho Administrativo.
• Se desempeña como docente en cursos y carreras de post-grado de derecho
constitucional y sociología de la Facultad de Derecho de la Universidad de La Plata.
• Es autor de diversas publicaciones, y ha brindado diversas conferencias en Argentina y en el exterior.

THE AUTONOMOUS STATE IN THE CONTEXT OF EUROPEAN INTEGRATION. A COMMENTARY ON THE DECISION 31/2010 OF THE SPANISH CONSTITUTIONAL COURT
by Francisco Balaguer Calleión

This paper analyzes the decision 31/2010 of the Spanish Constitutional Court, on the New Statute of Catalonia. Up to now, the almost unanimous assessment is that the Court has deactivated the fundamental lines of the Statute. This assessment is perhaps connected to the projection of some general principles established by the Court, which are clearly regressive not only for Catalonia but for the whole concept of the Autonomous State, to other parts of the decision. But those general declarations do not necessarily affect the more specific about the different parts of the Statute if we consider that the Court had the opportunity to declare their unconstitutionality but did not, thus validating the statutory options. From that perspective, this paper intends to offer an interpretation of the decision in relation with many of those problematic questions (competences, statutory rights, etc.) which show that the court validates the statutory options. Notwithstanding, some of the doctrinal lines have not only generated important political problems, but they also prove that the Court maintains an outdated notion of the Spanish State which does not take into account the constitutional reality of today. On the other hand, the arguable idea the Court establishes about the relationship between the Statute and the Constitution expresses distrust for the growth of the constitutional density of the Autonomous Communities, generating unnecessary conflicts between the text of the 1978 Constitution and the current constitutional context of the Autonomous State integrated in Europe.

NI ANGE, NI BÊTE. SOME NOTES ON THE RELATIONSHIP BETWEEN MORAL, ECONOMY AND LAW (FROM A PUBLIC LAW POINT OF VIEW)
by Maria De Benedetto

Since its inception economy has been considered a part of moral philosophy. What has happened? Why has the main problem of the market become a moral one? The paper analyses the development of the relationship between moral, economy and law, adopting a public law point of view and dividing the question into three sections. The first question concerns the moral of the merchant (and also the moral-politicalinstitutional framework of social market economy, as described by Roepke, that requests a minimun amount of honesty in business). The second question relates to the moral of the consumer (and also the ambiguity of the institutional approach to this question). The third deals with the moral of the regulator (referring to ethic codes and facing the problems of creative compliance and regulation failures).
The conclusion is that law (and more specifically public law) has to act properly as mediator between economy and moral, never forgetting the relevance of its enforcement and never aiming to replace moral.

RENEWABLE ENERGIES AND REGIONAL LEGISLATION BETWEEN SUBSIDIARITY AND LOYAL COOPERATION
by Ornella Spataro

The Constitutional Court has had occasion to deal with some recent decisions of legislative apportionment in the energy field between State and Regions. In particular, the judgments on a number of regional laws governing the production of energy from renewable sources, have revealed a series of critical issues that underlies it, as the dynamics
of the sources, the materials interferences between different areas of competence, the role of subsidiarity and loyal cooperation in the matter, and, more generally, the relationship State-Regions in the exercise of legislative shared power. Finally, the adoption of national guidelines, far from clarifying these issues, seems to further confirm the doubts about some aspects of the dynamics of the current sources of law.

AN INSIGHT INTO VULNERABLE AND REDUCED RIGHTS INDIVIDUALS AND THEIR FUNDAMENTAL RIGHT
by Maria Teresa Denaro

The article examines the condition of basic rights and vulnerable and reduced rights individuals in National and International Court systems. Having described the two subject categories, the article then analyses the status of their basic rights and the safeguard of their unassailable core, issue that also emerges from the indications provided by national law and European Court oh human rights.

L'articolo Nuove Autonomie 3-2010 proviene da Nuove Autonomie.