Sommario: 1. L’ambito di analisi. – 2. Il tipo di potere differenziabile: il declino della funzione legislativa e la vocazione amministrativa delle Regioni. – 3. La misura del potere differenziabile tra pretese autonomistiche ed unità della Repubblica. – 4. Il rischio della duplicazione delle funzioni amministrative e dei costi a carico della finanza pubblica. – 5. L’esigenza di uniformare e il bisogno di semplificare.

1. L’ambito di analisi
Se si intende indagare, compiutamente, il regionalismo differenziato, così come contemplato dall’art. 116, co.3¹, della Costituzione, non si può prescindere dall’analizzare il processo di conferimento delle funzioni amministrative e, in particolare, il loro trasferimento, quindi, la dismissione definitiva della titolarità del potere dallo Stato alle Regioni. Ciò presuppone due ambiti di analisi relativi: l’uno, al tipo di potere differenziabile; l’altro, alla sua misura. Ed invero, qualsivoglia conferimento funzionale che operi tra variegati livelli territoriali determina non solo la rivisitazione delle conferenti regole, quanto, sovente, l’istituzione di nuovi uffici, il trasferimento di personale e l’attribuzione di risorse², donde l’esigenza di operare nella rigorosa osservanza del vincolo del buon andamento amministrativo, così da preservare non solo l’economicità dell’azione, quanto l’efficienza dell’organizzazione

L'articolo Regionalismo differenziato, funzioni amministrative ed unità della repubblica proviene da Nuove Autonomie.

Abstract

Nel novero dei principi che regolano le relazioni giuridiche si è soliti sussumere, altresì, il vincolo della chiarezza, in virtù del quale la parte deve poter comprendere, agevolmente, l’altrui volontà così da poterne calcolare e misurare gli effetti. La chiarezza non esprime una qualità intrinseca dell’atto bensì riflette l’assenza dell’equivoco, quindi, del conflitto, cosicché gli effetti dell’atto stesso coincidano con ciò che il destinatario ragionevolmente intende. E ciò deve avvenire nel segno del buon andamento e della buona fede, che impongono all’amministrazione, altresì, di operare in modo chiaro e lineare, onde fornire ai cittadini regole di condotta certe e sicure, soprattutto se da esse possano derivare conseguenze lesive.
Un paradigma, questo, che ormai permea la funzione tutta, esso trovando infatti sintesi nell’ordinamento, per il quale i rapporti tra il cittadino e la pubblica amministrazione sono improntati ai princìpi della collaborazione e della buona fede. La perplessità decisionale, pertanto, rende oscuro il contenuto del provvedimento, il quale, così, risulta inidoneo a palesare ovvero a rendere intellegibile il tipo di potere che l’amministrazione ha scelto di espletare. Tutto questo non solo acuisce la crisi del principio di legalità, quanto confligge con i noti vincoli dell’imparzialità e del buon andamento dell’amministrazione, minando, altresì, la certezza del diritto, il cui significato non può non includere, oltre alla stabilità, all’efficacia ed all’osservanza delle regole, altresì, l’accessibilità del cittadino alle prescrizioni del potere, l’effettiva comprensione delle scelte amministrative e, quindi, l’univocità delle decisioni.

Decision-making perplexity and intelligibility of power

In the list of principles governing legal relations, it is customary to subsume, also, the constraint of clarity, by virtue of which the party must be able to understand, easily, the will of others so as to be able to calculate and measure its effects. Clarty does not express an intrinsic quality of the act but reflects the absence of the misunderstanding, therefore, of the conflict, so that the effects of the act itself coincide with what the addressee reasonably intends. And this must be done in the name of good performance and good faith, which also require the administration to operate in a clear and linear way, in order to provide citizens with certain and safe rules of conduct, especially if they may have harmful consequences. This is a paradigm that now permeates the entire function, finding in fact synthesis in the system, for which the relations between the citizen and the public administration are marked by the principles of collaboration and good faith. The decision-making perplexity, therefore, obscures the content of the measure, which, thus, is unsuitable to reveal or to make intelligible the type of power that the administration has chosen to carry out. All this not only exacerbates the crisis of the principle of legality, but also conflicts with the well-known constraints of impartiality and good performance of the administration, also undermining the certainty of the law, the meaning of which cannot fail to include, in addition to stability, effectiveness and observance of the rules, also the accessibility of the citizen to the prescriptions of power, the effective understanding of administrative choices and, hence, the unambiguity
of decisions.

L'articolo Perplessità decisionale e intellegibilità del potere* proviene da Nuove Autonomie.

INDICE
DOTTRINA

Domenico Siclari – Riflessioni sulla tutela dell’identità culturale del “circo” alla luce dell’animal welfare – 415
Marco Tiberii – L’uso degli strumenti elettronici specifici (building information modeling) nei contratti pubblici – 429
Luciana De Grazia – Oltre la democrazia rappresentativa? Sovranità popolare e referendum nell’esperienza britannica, spagnola e francese – 455
Edoardo Giardino – Beni paesaggistici, interessi sensibili ed omologazione del regime giuridico – 481
Roberto Leonardi – L’edilizia di culto tra libertà religiosa e tutela del territorio: il caso Lombardia – 509
Carla Negri – L’abrogazione della protezione umanitaria nella legge n. 132 del 2018 e il diritto di asilo costituzionale – 537
Francesco Siciliano – La procedura di riequilibrio finanziario pluriennale dell’ente comunale ed il problema della ‘coperta troppo corta’: tra “costituzionalizzazione” della crisi da indebitamento ed inadeguatezza del nuovo modello di amministrazione “contabile” – 571
Luca Di Salvatore – Un’introduzione allo studio delle reti di imprese come modello di sviluppo per le aree interne – 621
Giulia Torta – L’iniziativa “Capitali Europee della Cultura”: aspetti sostanziali e profili critici – 645

NOTE E COMMENTI

Fulvia Passananti – La Corte costituzionale torna sul riparto di competenze fra Stato e Regione in materia di vaccinazioni obbligatorie. Osservazioni a margine della sentenza n. 137 del 2019 – 681

Abstract
Reflections on protection of the cultural identity of the circus in the light of the animal welfare
by Domenico Siclari

This paper analyzes the contribution of the multi-level system for the protection of animals. In realizing a condition of well-being for animals, one focuses, especially, on the contributions of European law, where it provides in the determination of this spectacular typology that belongs to the common cultural heritage. And in which the use of animals becomes an identifying element of the same and therefore to be protected.

The use of specific electronic tools (building information modeling) in public contracts
by Marco Tiberii

The aim of the study is to analyse the influence of new electronic means and the possibilities arising from their use in the context of public contracts. In particular, the paper focuses on building information modeling, a new technology at the service of the construction sector. Through the analysis of the Italian legislation, we understand the spaces of compulsory and optional use of the same, as well as the problems that arise in the context of public contracts, from the design phase to the executive phase.

Beyond Representative Democracy? Popular Sovereignty and Referendum in the United Kingdom, in Spain, and in France
by Luciana De Grazia

In this paper the author elaborates on reflections about the role of the referendum in the British legal system, well-known to be characterized by a representative democracy, with the intent to examine the evolution of this institute. It is also a comparative study which examines the effects of the consultative referendum in the Spanish legal system and the characteristics and the effects of the legislative referendum in the French legal system in order to identify the analogies and the differences among these referendum.

Landscaped assets, sensitive interests and omologation of the legal regime
by Edoardo Giardino

The protection of landscaping has been the subject of legislative reforms in the light of social changes. This protection must be ensured through a proper weighting of the many interests that are opposed. The legislature considered it necessary to approve the discipline of sensitive interests, including the environment and the landscape, in order to empower and simplify administrative action. In particular, the legislature changed the discipline of the services conference and provided for art. 17 encore of Act 241 of 1990 (Silence between public administrations and between public administrations and operators of public goods or services), which, in contrast to the assent silence governed by art. 20 of Act 241 of 1990, applies “even to cases where the acquisition of absentees, concerts or anything but named of administrations responsible for environmental, landscape-territorial protection, cultural heritage and the health of the citizens, for the adoption of regulatory and administrative measures that are the responsibility of public administrations. The application of silence also to ‘sensitive’ interests does not, in fact, lead to a weakening of their safeguards, but improves the way they are protected.

The building of worship between religious freedom and protection of the territory: the Lombardy case
by Roberto Leonardi

The theme of the localization of places of worship has acquired over time a growing relevance also from the legal point of view, accompanied by a complexity of its discipline, as demonstrated by the copious administrative and constitutional jurisprudence that has formed on the subject. Certainly the theme, and also from this its complexity, substantially affects the rights of equality, the protection of the different ideological, cultural and religious identities of individuals and groups, guaranteed by the Constitution that with art. 8 introduced in our legal system the idea of pluralism, intended to guarantee the different religious identities, while, at the same time, the art. 19 of the Constitution has sanctioned the right to profess one’s faith freely and to exercise the cult in public or in private. The availability of buildings and places of worship to be used for the celebration of rites is, therefore, a necessary element to effectively ensure not only the individual, but also the communities of practitioners the free exercise of their creed. At the same time, the discipline for the construction of these buildings, in the exercise of the competences on the government of the territory, is a task to which the administration cannot escape with the criticali-ties that we will try to highlight by referring, for the cheapness of the research, only to the Lombard regional discipline.

The repeal of humanitarian protection in law 132/2018 and the constitutional right to asylum
by Carla Negri

The article analyzes the humanitarian protection news contained in the law 132/2018. The changes introduced pose some interpretive problems on the temporal effects of the repeal of humanitarian protection and their impact on the right to asylum under article 10.3 of the Italian Constitution. The paper focuses, in particular, on the relationship between humanitarian protection and the right to asylum, highlighting the need for the intervention of the Italian Constitutional Court, in order to participate in the construction of a common European right of asylum.

About the italian ‘short blanket’ syndrome in the application of rebalancingfinancial rules by the competent municipal authority: from the economic crisis in the Constitution to the ‘accounting’ administrative model’s inadequacy
by Francesco Siciliano

The work is about the contradiction between the italian Constitutional reform in the 2012 – introducing the principle of balanced budget, as a necessary effort to improve the efficiency and effectiveness of public administration against the economic crisis – and the research of the optimum legal solution to reinforce the commitment to finally reduce the hugly public debt, as it was accumulated over a long time ago. In this way, the ‘short blanket’ syndrome depicts, by the author, the evidence of an ‘accounting’ administrative model’s inadequacy in Italy at municipal’s governance level, where, nowadays, the pubblic administration is not really able to satisfy cityzens’ fundamental needs or credits, because of the duty of setting aside money to rebalance pubblic debt. The result is a silent struggle between the restrictings rules of european legislative framework, transposed in italian Constitution and in its implementig laws to remove public debt and an Italian framework, apparently in compliance with overnational rules, but actually derogatory in order to application of rebalancing rules by the competent municipal autorithies (artt. 243-bis e 243-quater, T.U.E.L), with the aim to find much pubblic money to satisfy citizen’s needs and rights by extending timeline to write off public debt. So the ‘short blanket’ syndrome is increasingly checked by Italian Constitutional Court and Court of Auditors, also taking care of potential damages for future generations.In this way, legal uncertainty groves up day by day and, over all, the administrative model doesn’t receive any benefit or any definitive solution, that could be found, by the author, only at european and state governance levels.

An introduction to the study of business networks as a development model for internal areas
by Luca Di Salvatore

The essay aims at investigating if business networks and, in particular, the network contract, may constitute an effective business cooperation pattern for the regeneration of “territorial capital” present in internal areas. The analysis of the issues related to internal areas and of the main characteristics of business networks shows that the reticular entrepreneurial cooperation can contribute to the development of those territories, that are characterized by conditions of infrastructural and socio-economic disadvantage, but are also endowed with resources and natural and human capital, in which depopulation and abandonment of traditional small business are registered.

The European Capitals of Culture initiative: substantive aspects and critical profiles
by Giulia Torta

The paper analyzes the substantial aspects and critical profiles of the “European Capitals of Culture” initiative, examining the theme of promoting culture at European level and the problems connected with the management and organization of the event-year at national level. The reflection on the theme is developed through an analytical path that postulates the assimilation of the “European Capitals of Culture” initiative to the “Major Events” [legislation]. Noting the absence of a discipline, the paper attempts to highlight the pros and cons associated with the introduction into the Italian regulatory system of any special discipline on the subject, intended to offset a European and national regulatory landscape that is severely lacking

Mandatory vaccinations: The Constitutional Court deliberates on State vs Regions responsibilities. Remarks concerning decision no. 137/2019
by Fulvia Passananti

This study analyzes the issues underlying Decision no. 137/2019 of the Constitutional Court.

L'articolo Nuove Autonomie 3-2019 proviene da Nuove Autonomie.