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

Maria Immordino e Marco Ragusa – Brevi note sulla qualificazione giuridica dei beni costituenti la rete ferroviaria – 309
Aristide Police – Il servizio pubblico di trasporto in Italia: regolazione e mercato nel trasporto ferroviario – 321
Anna Simonati – La parità di genere in Italia: la giuridificazione dell’uguaglianza sostanziale, fra tutela di diritti individuali e interesse della collettività – 361
Antonio Senatore – L’acquisizione gratuita degli abusi edilizi al patrimonio comunale: evoluzione normativa ed approdi giurisprudenziali – 383
Olivia Pini – Le nuove frontiere del servizio pubblico locale: la vicenda UBER tra regolazione, giurisprudenza e ruolo delle autonomie – 401
Simona Polimeni – Il welfare generativo tra dimensione teorica e applicazioni pratiche: cenni sul ruolo degli enti locali – 429
Giulia Silvia – I servizi museali come servizi pubblici essenziali: ratio e conseguenze dell’intervento normativo – 451

Abstracts

BRIEF NOTES ON RAILWAY INFRASTRUCTURE COMPONENTS’ LAW FRAMING

by Maria Immordino and Marco Ragusa

The paper synthetically describes how Italian courts and scholars interpreted the legal transformations occurred to the railway market, and notably to the rail-network’s infrastructure components property regulation, since the end of the twentieth century. The authors refute the (prevailing) opinion assuming a substantial continuity between the current stage of regulation and the regime of public property provided by the 1942 civil code; they show the reasons why, on the contrary, the rail-network components have to be considered as goods subject to private property law both on the formal and the substantial floor. For this purpose, the paper emphasizes how the public interests aimed by the previously in force law scheme are radically different from the interests at present representing rationes of the services of general economic interest’s special regulation.

PUBLIC TRANSPORT SERVICE IN ITALY: REGULATIONS AND MARKET OF RAIL TRANSPORT

by Aristide Police

In a postindustrial society, in which most wealth comes from the service sector, the recovery of competitiveness and productivity necessary for the economic relaunch should inevitably include the system of public services. In particular, among important non-local transport services, the service of rail transport in our country is probably the only one which is still going through an interesting transition stage between the deconstruction of state monopoly and the significant success of market models and their effective public regulation. At the EU level, the realization of the transport policy has been transfered from the Treaty to the successive legislative activity of EU institutions, which have developed the policy in three different historical stages: the first which starts with the formulation of the Memorandum of the Commission in 1961 until the accession of Great Britain, Denmark and Ireland to the Community in 1973; the second stage, beginning in 1973 and ending with the judgement of the Court of Justice on 22 May 1985, ruling on actions for failure to act appeal proposed by the European Parliament against the Council in this very matter; and finally the third stage, starting from that judgement and still in full progress. The Italian system has adopted over the years different EU legislative acts and with the legislative decree n.15/2010 has recently adopted the so-called Third EU railway package. Thanks to the latter, after the legislative decree of 15 July 2015, n. 112, in line with the EU objective to promote rail transport among the EU member states, it has fostered the development of competitiveness and freee circulation of people and goods. The process of liberalization launched in the EU has contributed quite a lot to the emergence of an organizational arrangement, which in our country had been chosen for the ownership, management and regulation of railway infrasturture and related transport service. Recently, indeed, the awareness of the failure of the traditional model of public enterprises, both regarding the quality of services provided and their low level of profitability, has led to a gradual dissolution of state participation in economic undertakings and, at the same time, has brought about an intense process of transformation of government bodies and state companies. Therefore, in Italy, in addition to the process of liberalization pushed by the EU law there has been a concurrent process of privatization of monopolistic state companies. Given such legislative context at the national and EU level, the Government has decided to give way to “substantial” privatization of the state railway company (Ferrovie dello Stato S.p.a.) The industrial reorganization of the company, in the general context of reforms of public services, should be considered highly appropriate (if not even necessary) in order to contribute to the improvement of the competitiveness and the productivity, which is supposed to be unavoidable in the process of market positioning of a state railway company.

GENDER EQUALITY IN ITALY: THE JURIDIFICATION OF SUBSTANTIAL EQUALITY, BETWEEN PROTECTION OF INDIVIDUAL RIGHTS AND PUBLIC INTEREST

By Anna Simonati

The progressive attention by the Italian legislators (both at the central and at the regional level) for gender equality is still a work in progress. The starting point of the evolution is in some fields of private law (such as family law and labour law, where discriminations against women were particularly evident); later on, the same sensitivity grew up in other subjects and especially in constitutional and administrative law. The evolution of a gender-sensitive legal landscape was not totally spontaneous, as it was also a consequence of the inter-action with supra-national inputs. During the 20th century and in the beginning years of the 21st, many important results have been reached in the perspective of women’s empowerment and involvement in social, political and economic life. The most relevant goal seems to be the acceptance of the idea according to which gender equality reflects an interest not only of women, but also of the whole society, because it grants real pluralism; moreover, it may also help men to reach equal rights in the fields where they are under-represented in light of surviving gender stereotypes. In recent years, further complications may be noticed in this subject; the role of public law is basic to introduce, thanks to a double approach, efficient hard law and soft law mechanisms.

THE COMPULSORY PURCHASE WITH NO COMPENSATION, ORDERED IN FAVOUR OF THE MUNICIPALITY, OF UNAUTHORISED BUILDINGS: THE LAWS ENACTED IN THE TIME AND THE LANDINGS JURISPRUDENTIAL

by Antonio Senatore

This article aims at providing a systematic and in-depth overview of law provisions governing a peculiar legal instrument which is frequently applied by public authorities in charge for supervision and control in the field of building and planning regulations: the compulsory purchase with no compensation, ordered in favour of the municipality, of unauthorised buildings pursuant to article 31 of Presidential decree n. 380/2001, i.e. the so-called consolidated building Act. The analysis starts from the laws enacted in the time to regulate this instrument, with a focus on the recent introduction of a fine which applies in addition to compulsory purchase. The fine is also commented in the subsequent sections of the article which deal with procedural and practical issues. This article pays attention to the legal nature of compulsory purchase, to the conditions which need to be fulfilled for its application, as well as to objective and personal requirements for an effective transfer of ownership.

THE UBER CASE AND LOCAL PUBLIC SERVICES: REGULATION, JUDICIAL REVIEW AND A NEW ROLE FOR LOCAL AUTHORITIES

by Olivia Pini

Within the new trends of today’s administrative law, great interest has been raised by the subject of technology services for mobility (STM), and particularly by the UberPop issue; this system can be described as a passenger transport service, carried out by non-professional drivers, which aims to the matching between supply and demand by the use of a digital operating system and isn’t subject to the public rules generally applied to other transport services such as taxis. Many different institutions (both Authorities and judges) have recently expressed their point of view on UberPop, particularly focusing on its nature, on its compliance to the law and most of all on pointing out the most suitable regulation for it; moreover, also the European Court of Justice has been lately involved in the matter. What seems to emerge from these facts is the urgent necessity, in this subject, of a new regulation, able to overcome its complexities and to enhance its advantages in terms of smart technologies’ development and competition-promoting.

THE GENERATIVE WELFARE BETWEEN THEORY AND PRACTICAL APPLICATIONS: NOTES ON THE ROLE OF LOCAL AUTHORITIES

by Simona Polimeni

The present work has as its object the study of so-called generative welfare, both from a theoretical point of view that in its possible practical applications. The starting point to frame the institution in question is the recent bill of Zancan Foundation, which provides a normative description and supervising the so-called social compensation actions (SCA). The generative welfare implies a rethinking of theories of justice that characterized so far the welfare systems. In particular, we tried to pick up some hints offered by the idea of   justice proposed by Amartya Sen, who considers, together with the unilateral decision as to what are the principles of justice, removal of injustice, through an open process of dialogue and comparison, among the various parties involved. We do not try, that is, only to include what type of institution can be considered fair, but, also, what kind of society we must train in order to avoid injustice, exclusion and indifference. In this complex process of reworking, finally it is necessary to support the idea of   justice a further element: care (or housing). To remove injustice, in fact, it is necessary not only to make the right decisions (which must, in any case, be born from a comparison between several opinions, all equally reasonable), but also to take care of the needs of others. This is, in hindsight, the idea of   justice to the underlying generative welfare model, which responds well to the increasingly pressing subjectivism in the demand for justice. Only in such a theoretical perspective, in fact, one can accept that a social right (or rather: the provision of a social benefit), is conditioned to a positive act (or social compensation actions). It seemed necessary, in the present work, to dwell on the study of the relationship between the benefit to the quid pro quo, to see what legal category it should retract. It was decided, finally, for the burden category, drawing from this the appropriate conclusions about the limits and possibilities of practical application of this model. The bill of Zancan Foundation accurately describes the process that allows to realize the quid pro quo, providing the intervention, next to the recipient (so-called Actor of SCA), a Lender of performance, of an actuator body (which projects SCAs) and a regulator body (which monitors the proper implementation of the SCA). We note, in this tripartite division, a peculiar role assigned to local authorities, who are entrusted with the task of promoting, regulating, monitoring and evaluating the SCA, as well as to keep a (municipal) register of the SCA and to measure the social and economic value to these product. Finally, analysing art. 11 of the bill, which extends the application of SCA – and, in general, the generative model – to the criminal and penitentiary sphere, we tried to assess the possible development of the generative welfare towards so-called restorative justice. We tried to show that the logic underlying the two institutions and the goal to achieve is very similar, and we believe that the generative welfare can be a useful tool to disseminate and implement restorative justice practices, especially at the local level.

AN UNFORESEEABLE VIRTUOUS CIRCLE: RULES AND REGULATIONS ON THE IMMIGRATION REGIME AND NEEDS FOR LOCAL DEVELOPMENT (MINOR MARGINAL NOTE OF CALABRIAN REGIONAL GOVERNMENT’S LAW NO. 18/2009)

by Simona Polimeni

The paper deals with immigration phenomenon between multilevel governance and regional/local rules. It is taken into account the duty to welcome immigrants on the basis of the constitutional principles of equality and solidarity (as a form of juridicization of empathy?). Then it is faced the issue of Original citizenship, citizenship as sense of belonging, and citizenship as participation: turning the immigration ‘problem’ into a ‘resource’. The analysis of Calabrian Regional Government’s Law No. 18/2009 then leads to some conclusions on how the polycentric law-making can sometimes be effective.

MUSEUM SERVICES AS ESSENTIAL PUBLIC SERVICES: RATIO AND REGULATORY CONSEQUENCES OF THE INTERVENTION

by Giulia Silvia

 In September the Government adopted an important Decree that produces effect in the public service sector, including museum services in the list of 1990 September 12, n. 146. Nevertheless this seems only an attempt to defend the government’s image. In effect the Decree was adopted during a particular event, a meeting of the workers who carry out their service at the Colosseum, that caused an unannounced closure of the monument. This paper analyses the evolution of strike regulation and tries to explain the role of the public service on strike commissions and how it must act. Currently the Commission has limited power even though this role is important in the balance of its work. It’s important to define the role and authority of the commission in order to bring some regulation to strikes in essential public services but also try to organize this sector that is characterized by inefficiency and disorganization.

L'articolo Nuove Autonomie 3-2015 proviene da Nuove Autonomie.