Abstract

La storia della concessione amministrativa parla di un istituto molto variegato, rispondente a presupposti e finalità che nel tempo risultano estremamente diversificati. Come anche varia è la natura giuridica degli atti che la supportano. Da esercizio di libero arbitrio a strumento compartecipe della gestione di una fetta non indifferente della finanza pubblica, le oscillazioni dell’istituto concessorio la assimilano al pendolo di Foucault: nonostante il suo recente irrigidimento in norme di diritto positivo, sono ancora persistono evidenti le ragioni della resistenza al cambiamento.

Administrative concession and Foucault’s Pendulum: from the genesis to the threshold of European Law

Administrative grant history spoke of a very varied instrument, meeting extremely diverse assumptions and purposes over time. Just as also varied is the extent of legal nature of the acts that support it. From a free exercise of free will to an instrument co-participating in the management of a not insignificant slice of public finance, the oscillations of the concessionary institution liken it to Foucault’s pendulum: despite its most recent tightening in positive law norms, reasons for resisting change still persist.

L'articolo La concessione e il pendolo di Foucault : dalla genesi alle soglie del diritto europeo* proviene da Nuove Autonomie.

Abstract

La partecipazione procedimentale amministrativa ha visto la sua nascita prevalentemente in funzione di contraddittorio rispetto alla p.a., a garanzia della difesa di interessi non ravvisati o non considerati da quest’ultima. Tuttavia, l’evoluzione della società e la moltiplicazione di bisogni e interessi hanno reso nel tempo la norma di legge inadeguata alla individuazione e alla disciplina in astratto di tutti gli interessi coinvolti nell’azione dei poteri pubblici. Da qui il ruolo della p.a. è andato via via ampliandosi, passando da una funzione meramente esecutiva della legge ad una interpretativa di istanze e di contemperamento di interessi, così solo potendo pervenire alla legittima definizione della c.d. “regola del caso”. Un adeguato procedimento, consapevole della funzione compartecipativa e tutore delle garanzie sostanziali procedimentali, costituisce la premessa necessaria per la legittimazione dell’esercizio della funzione amministrativa.

Procedural participation as a source of legitimisation of the use of administrative power

Administrative procedural participation saw its birth mainly in the function of opposition to the public authorities, to guarantee the defence of interests not recognised or not considered by the public authorities themselves. However, the evolution of society and the multiplication of needs and interests have over time made the law inadequate to identify and regulate in advance all the interests involved in the action of public authorities. Hence the role of the public authority has gradually expanded, moving from a merely executive function of the law to one of interpreting requests and balancing interests, thus only being able to arrive at the legitimate definition of the so-called ‘rule of the case’. An adequate procedure, aware of the participatory function and guardian of substantial procedural guarantees, constitutes the necessary premise for the legitimisation of the exercise of the administrative function.

L'articolo La partecipazione al procedimento quale fonte di legittimazione dell’uso del potere amministrativo proviene da Nuove Autonomie.

INDICE

Maria Immordino – Laura Lorello Introduzione

Loredana Giani – Democrazia, partecipazione e procedure decisionali. Spunti di riflessione per una lettura delle dinamiche per la garanzia della effettività dei diritti sociali

Mario R. Spasiano – La partecipazione al procedimento quale fonte di legittimazione dell’uso del potere amministrativo

Annamaria Poggi – La partecipazione degli “interessi” ai processi normativi

Laura Lorello – La rappresentanza di interessi nella normativa regionale: una prospettiva possibile per il legislatore statale?

Piedad García-Escudero Márquez  – Evolución de la forma de gobierno en España y procedimientos parlamentarios

Ángel Rodríguez – Transfughismo politico e procedure decisionali nelle giunte locali e nei parlamenti delle comunità autonome in Spagna*

Yolanda Gómez Lugo – La protezione dei diritti fondamentali dei terzi convocati dinanzi le Commissioni parlamentari d’inchiesta

Pierdomenico Logroscino – Rappresentanza degli interessi e rappresentanza politica: tra moti confluenti e profili d’inversione sostanziale

SEZIONE I – La partecipazione dei privati nei procedimenti decisionali

Roberto Di Maria – Sconfiggere un pregiudizio: (come) regolare la partecipazione dei privati nei procedimenti decisionali pubblici

Luca Alessandria – Grandi opere e strumenti partecipativi Sviluppi recenti delle forme di partecipazione ai procedimenti amministrativi infrastrutturali

Chiara Arruzzoli – La disciplina dei processi decisionali: dal lobbying al nudging, due strumenti in cerca di legislazione

Giulio Casilli – L’intervento dei privati nei processi decisionali di rilevanza politica: la necessità democratica di una legge sull’attività di lobbying

Francesco Merenda – Dall’anticorruzione alla promozione dell’integrità. Il necessario cambio di paradigma per le pubbliche amministrazioni tra esigenze di efficienza e garanzie di imparzialità

Andrea Michieli – I Codici di condotta dei parlamentari per la trasparenza dei rapporti tra politica e interessi

Vittoria Padovani – La centralità dell’utenza nei processi decisionali degli enti locali alla luce del d.lgs. 23 dicembre 2022, n. 201. Teoria e prassi di una partecipazione in cerca di definizione

Giorgio Sichera – L’art. 55 del d.lgs. 3 luglio 2017, n.117 come strumento di partecipazione alla decisione pubblica: profili virtuosi e problematiche sottese

SEZIONE II – Le diverse forme della partecipazione: prospettive di una regolazione tra diritto interno e diritto straniero

Stefano Catalano – Le diverse forme della partecipazione: prospettive di una regolazione tra diritto interno e diritto straniero

Emanuele Cocchiara – La regolazione del digitale: tra self-regulation, codici di condotta ed authorities

Giuseppe Verrigno – La partecipazione politica e l’invio di petizioni alle Camere

Vincenzo Desantis – L’avanzata del soft-law e l’arretramento della partecipazione democratica. Spunti e riflessioni sulle tendenze della normazione

Marco Gugliandolo – L’influenza della tecnica e del mercato sul sistema delle fonti. Quale futuro per il diritto oggettivo? Una riflessione sul ruolo dell’innovazione

Paolo Inturri – Intelligenza artificiale e soft law Il ruolo dei codici di comportamento nell’Artificial Intelligence Act

Piercarlo Melchiorre – L’influenza della forma di governo sull’espansione del fenomeno del lobbying. Una comparazione tra Italia e Stati Uniti

Demetrio Scopelliti –  Leggi-provvedimento e istruttoria legislativa: una prospettiva «partecipativa», rileggendo Cammeo e Mortati

SEZIONE III – Strumenti ed esperienze di partecipazione nei procedimenti decisionali

Elisa Cavasino – Strumenti ed esperienze di partecipazione nei procedimenti decisionali. Una breve introduzione

Francesco Giuseppe Campodonico* e Claudio Cozzi Fucile** – Rappresentanza degli interessi, Lobbying, Informazione ed Educazione: per una nuova declinazione della democrazia rappresentativa

Giulia Giacobbe – Le nuove frontiere della partecipazione democratica nel processo decisionale pubblico: esempi di crowdlaw con sguardo proteso al nascente fenomeno del digital lobbying

Cristiana Livolsi – Il bilancio partecipativo: laboratorio di democrazia. L’esperienza del Comune di Bologna

Stefano Rotolo – La valutazione delle politiche pubbliche nel sistema parlamentare italiano: tra disfunzioni ed opportunità di riforma

Flavio Scuderi Di Miceli – Spinte gentili e partecipazione pubblica: un’indagine sull’innovazione nella regolazione

L'articolo Nuove Autonomie – Numero 1-2025 – Speciale proviene da Nuove Autonomie.

Sommario: 1. Il rapporto scienza-amministrazione nel sindacato del giudice amministrativo. – 2. L’ordinanza istruttoria Consiglio di Giustizia Amministrativa per la Regione Sicilia 17/1/2022, n. 38. – 3. Alcune questioni a margine, ma non troppo.

1. Il rapporto scienza-amministrazione nel sindacato del giudice amministrativo.

Il periodo della pandemia sta mettendo a dura prova talune categorie concettuali che ormai da tempo hanno assunto, anche nel contesto giuridico, rilevanza primaria. In modo particolare mi riferisco al rapporto tra scienza e tecnica, da un lato, e l’esercizio dell’azione amministrativa, dall’altro, ambito che costantemente vede crescere la produzione di atti pubblici supportati da contenuti provenienti da saperi metagiuridici, in grado per lo più, per il carattere dirimente della loro efficacia, di degradare il provvedimento e gli spazi di discrezionalità ad esso correlati, a strumenti di mera trasposizione giuridica di risultanze tecnico-scientifiche vincolanti l’intero esercizio della filiera amministrativa. Invero ci vollero molti anni perché la giurisprudenza dell’Adunanza Plenaria del Consiglio di Stato (sentenza c.d. Baccarini n. 601/1999), dopo le forti sollecitazioni della dottrina in anni risalenti (mi riferisco in particolare agli studi
di Franco Ledda¹), approdasse al convincimento che la discrezionalità tecnica “è altra cosa dal merito amministrativo”, concretandosi in un giudizio con risultati che magari esulano dalla certezza, semmai sono anche opinabili ma, in ogni caso, non rientrano nella sfera dell’opportunità, aprendo così all’ammissione di nuovi spazi di sindacato per il giudice amministrativo. I provvedimenti amministrativi a fondamento tecnico-scientifico si presentano peraltro quale frutto di un giudizio applicativo di un metodo a carattere scientifico o para-scientifico, attenendo, per dirla con la felice espressione di Federico Cammeo, “più alla ragione che ad un potere”²

L'articolo Riflettendo sull’ordinanza n. 38/2022 del CGARS, 19 febbraio 2022. Talune riflessioni a margine della ordinanza n. 38/2022 del CGARS e altre questioni in tema di obbligo vaccinale proviene da Nuove Autonomie.

INDICE

Maria Immordino – Editoriale

SAGGI

Guido Corso – Silenzio assenso: il significato costituzionale

Fabio Merusi – La tutela risarcitoria come strumento di piena giurisdizione

Raffaele Picaro – Gli Organismi Indipendenti di Valutazione ed il Ciclo di misurazione e gestione della Performance nelle Amministrazioni centrali dello Stato, tra ottimizzazione del risultato organizzativo ed attuazione dei valori costituzionali

Aristide Police – Enti Pubblici di Ricerca ed Università: le persistenti ragioni di una differenziazione e le indifferibili esigenze di uno sforzo comune

Pier Luigi Portaluri –Contro il prossimalismo nel governo del territorio

Antonio Ruggeri – Sovranità e autonomia regionale, dal modello costituzionale al tempo dell’emergenza (prime notazioni)

Franco Gaetano Scoca – L’enigma della nullità del provvedimento amministrativo

Mario R. Spasiano – Una riflessione su Giambattista Vico e il diritto amministrativo

Giuseppe Verde – Il Piano Nazionale di Ripresa e Resilienza e la riforma della giustizia

Isabella M. Lo Presti – Le Costituzioni partecipate nell’area andina. Esperienze costituenti a confronto in vista dell’elezione dell’Assemblea costituente cilena

LA DOTTRINA DIALOGA CON LA GIURISPRUDENZA

Roberta Lombardi, Fabrizia Santini – La Corte Costituzionale si pronuncia in tema di comporto e “terapie salvavita”: crisi della fattispecie e innalzamento dei criteri interpretativi dalla legalità al diritto 

Livia Lorenzoni – Valutazioni tecniche e giudice amministrativo. Il caso delle comunicazioni elettroniche

L’ANGOLO DELLE LIBERTA’

Maria Immordino – Note sparse su un libro dedicato alla tesi di laurea di Giovanni Falcone

Abstract 

Silenzio-assenso: il significato costituzionale

di Guido Corso 

Il passaggio dal regime autorizzatorio espresso a quello tacito percorre tornanti che hanno condotto, nell’ultima disposizione governativa di cui al d.l. 77/2021, all’attribuzione al silenzio-assenso di una forza limitativa del potere amministrativo, che con la formazione di questo si esaurisce: ne consegue una rinnovata connessione tra il piano della (in-)validità, sotto forma di nullità, e quello della (inefficacia) della determinazione espressa tardiva. Il saggio si propone così di indagare sul significato del silenzio-assenso nel rapporto tra autorità e libertà, anche alla luce della costruzione dell’istituto a livello europeo e del suo recepimento nell’ordinamento statale: non più solo un istituto di semplificazione amministrativa, bensì uno strumento di ampliamento dei confini della libertà del privato, i quali possono essere ristretti soltanto nell’arco temporalmente definito del procedimento amministrativo, riacquisendo la loro ampiezza originaria – riconosciuta sul piano costituzionale – con la formazione del silenzio-assenso.

Silence-consent: the constitutional meaning 

The passage from the express authorisation regime to the tacit one follows a series of twists and turns that have led, in the last governmental provision of Law Decree no. 77/2021, to the attribution to the silence-consent of a limiting force of the administrative power, which is exhausted with the formation of the latter: as a result, a renewed connection between the level of (in-)validity, in the form of nullity, and that of (inefficacy) of the late express determination. The essay thus proposes to investigate the meaning of the silence-consent in the relationship between authority and freedom, also in the light of the construction of the institute at European level and its implementation in the state system: no longer just an institute of administrative simplification, but an instrument of extension of the boundaries of the freedom of the private individual, which can be restricted only within the time frame of the administrative procedure, regaining their original breadth – recognised at constitutional level – with the formation of the silence-consent.

La tutela risarcitoria come strumento di piena giurisdizione

di Fabio Merusi

La giurisprudenza della Corte EDU sul rispetto dell’art. 6 CEDU investe il tema della piena giurisdizione del Giudice amministrativo sull’azione amministrativa. Per valutare se costui possa giudicare appieno l’attività della pubblica Amministrazione nel rispetto del principio di separazione dei poteri, bisogna risalire alle origini della tutela risarcitoria, dapprima appannaggio del giudice civile, poi estesa al giudice amministrativo, non senza interferenze tra le due giurisdizioni. Ne deriva un quadro per il quale, nei giudizi risarcitori, il g.a. ha piena cognizione anche del fatto provocativo del danno lamentato: un’ampiezza di poteri inferibile anche dalla giurisprudenza sulla legittimità dei provvedimenti sanzionatori della p.A. e dalla casistica sugli atti emanati in violazione dei principi generali dell’ordinamento statale e unionale. 

Compensatory protection as a tool of full jurisdiction

The jurisprudence of the European Court of Human Rights (ECHR) on the respect of art. 6 ECHR concerns the issue of the full jurisdiction of the administrative judge on administrative action. In order to assess whether it can fully judge the activity of the public administration in accordance with the principle of separation of powers, it is necessary to go back to the origins of the protection of damages, first prerogative of the civil judge, then extended to the administrative judge, not without interference between the two jurisdictions. The result is a framework for which, in compensation judgments, the administrative judge has full knowledge of the fact that provoked the damage complained of: a breadth of powers inferable also from case law on the legitimacy of sanctioning measures of the public administration and from the case history of acts issued in violation of the general principles of state and union law.

Gli Organismi Indipendenti di Valutazione ed il Ciclo di misurazione e gestione della Performance nelle Amministrazioni centrali dello Stato, tra ottimizzazione del risultato organizzativo ed attuazione dei valori costituzionali

di Raffaele Picaro

La riflessione vuole essere l’occasione per realizzare un ripensamento critico delle modalità con cui la Pubblica Amministrazione sta affinando gli strumenti e le tecniche legati ai temi della performance e dell’anticorruzione/trasparenza, siccome sedimentati nella recente normazione, seguendo un approccio teso a valorizzare il concetto di creazione di valore pubblico. Il lavoro illustra l’assoluta peculiarità del Ciclo della Performance e delle correlate prerogative degli OIV nel contesto dei Ministeri rispetto alle altre P.A. ed in questo perimetro argomentativo si snoda il complessivo sviluppo dell’opera.

Indipendent Evaluation Bodies and performance analysis and management in Central State Government:  best organization and fundamental values implementation

The paper concerns a reconsideration of the way the public administration is enhancing tools and techniques related to performance and anti-corruption/transparency, according to the current regulation. The aim is to promote the concept of ‘public value’. The ‘cycle of performances’ and the so called OIV’s prerogatives have special features for Ministries, really different from the other public administrations. The study follows this path.

Enti Pubblici di Ricerca ed Università: le persistenti ragioni di una differenziazione e le indifferibili esigenze di uno sforzo comune

di Aristide Police 

Il saggio si concentra sulle relazioni tra le Università e gli Enti di ricerca in Italia. L’evoluzione storica dei due modelli di enti pubblici dediti alla ricerca è esaminata quale punto di partenza per suggerire nuove forme e opportunità di cooperazione per massimizzare gli sforzi di raggiungere gli obiettivi comuni nel generale interesse della comunità. Research institute system and university system: a complementary model in the Italian experience.

The essays is focused on the relationships between the universities and the research institutes in Italy. The historical evolution of the two different models of public bodies devoted to the research activity in Italy is examined as the standpoint to suggest new forms and opportunities of cooperation in order to maximize the efforts to achieve the common goals in the general interest of the community.

Enti Pubblici di Ricerca ed Università: le persistenti ragioni di una differenziazione e le indifferibili esigenze di uno sforzo comune

di Aristide Police 

Il saggio si concentra sulle relazioni tra le Università e gli Enti di ricerca in Italia. L’evoluzione storica dei due modelli di enti pubblici dediti alla ricerca è esaminata quale punto di partenza per suggerire nuove forme e opportunità di cooperazione per massimizzare gli sforzi di raggiungere gli obiettivi comuni nel generale interesse della comunità. Research institute system and university system: a complementary model in the Italian experience.

The essays is focused on the relationships between the universities and the research institutes in Italy. The historical evolution of the two different models of public bodies devoted to the research activity in Italy is examined as the standpoint to suggest new forms and opportunities of cooperation in order to maximize the efforts to achieve the common goals in the general interest of the community.

Contro il prossimalismo nel governo del territorio*

di Pier Luigi Portaluri  

Il mito dell’amministrazione di prossimità – alimentato anche dal diritto positivo – si è rivelato troppo spesso un mero pretesto per una gestione malaccorta dei bisogni espressi dalla popolazione che abita o comunque frequenta la città. In particolare i comuni non hanno dato buona prova di sé, spesso “catturati” da interessi privati. Il governo del territorio, inteso come comprensivo del paesaggio e dell’ambiente, ne è un esempio. Il sogno di riforme di struttura, ancora vivo negli anni ’70, è oramai tramontato. Restano due vie. Teorizzare un concetto giuridico di città distinto da quello di comune. Oppure differenziare i comuni in base alla loro virtuosità specifica, cioè alla loro capacità di adeguarsi ai modelli più avanzati di gestione degli usi e delle trasformazioni territoriali. Il resto è solo piccolo cabotaggio, come togliere ai comuni la competenza a irrogare ed eseguire le sanzioni connesse agli illeciti edilizi.

Against proximalism in the territorial governance

The myth of proximity administration – also nourished by the legal system – has too often proved to be a mere pretext for an ill-advised management of the needs expressed by the population living in or frequenting the city. In particular, municipalities have not shown themselves to be good, often “captured” by private interests. The territorial governance, intended as comprising the landscape and the environment, is an example. The dream of structural reforms, still alive in the 1970s, has now faded. Two paths remain. To theorize a legal concept of city distinct from that of municipality. Or to differentiate municipalities on the basis of their specific virtuosity, that is, their ability to adapt to the most advanced models of management of land use and transformation. The rest is just petty cabotage, such as depriving municipalities of the competence to impose and enforce sanctions related to construction offenses.

Sovranità e autonomia regionale, dal modello costituzionale al tempo dell’emergenza (prime notazioni)*

di Antonio Ruggeri 

L’articolo affronta il tema della relazione fra sovranità ed autonomia, nel quadro del processo d’integrazione europea, discutendo se sia possibile utilizzare la categoria della “sovranità” con riferimento anche all’Unione europea. L’Autore mette in evidenza come durante l’emergenza coronavirus il rapporto fra “Sovranità dei poteri” dello Stato e “sovranità dei valori” della Costituzione si sia sbilanciato nel senso della contrazione della prima e dell’espansione dell’ultima, con una evidente spinta al “riaccentramento” nella allocazione della sovranità sia sul versante dei rapporti interordinamentali sia su quello intraordinamentale. Nell’esercizio delle competenze si evidenzia come il principio della integrazione sia per atti che per organi abbia prevalso. L’articolo si conclude con una notazione finale che riguarda l’alibi dell’emergenza e lo strumentale richiamo ad esso sia stato atto a giustificazione della mancata affermazione sia della sovranità che dell’autonomia.

Sovereignty and Regional Authonomy, from the Constitutional Model to the Times of Emergency (first considerations)

The article debates the relationship between Sovereignty and Authonomy in light of the EU integration process. It is also considered if it is possible to “use” the category of Sovereignty to represent the structure and functioning of the EU. The Author emphasizes that during COVID-19 emergency the relationship between sovereign powers and sovereign values of the Constitution was unbalanced: there was a reduction of the former and the expansion of the latter with an evident push on a “recentralizing” of sovereignty both in relations within a specific legal order and in those between different legal orders. The exercise of competences has been characterized by the principle of integration with regard to acts and organs. The Author concludes that recalling the emergency could be considered as an alibi instrumental to endanger both sovereignty and authonomy.

L’enigma della nullità del provvedimento amministrativo

di Franco Gaetano Scoca  

Muovendo da un inquadramento storico della invalidità del provvedimento amministrativo, il lavoro rilegge criticamente le tappe che hanno portato alla previsione, nel contesto della legge sul procedimento amministrativo, della nullità nella sua molteplice configurazione, e ne individua le principali criticità e differenze rispetto al sistema civilistico, soprattutto dopo la entrata in vigore del codice del processo amministrativo. Una disciplina che, ad una attenta lettura, ha trasformato la nullità in una annullabilità rinforzata, cui è, tra l’altro corrisposta la pericolosa eliminazione della inesistenza. Una lettura critica della disciplina processuale, anche alla luce dei più recenti arresti giurisprudenziali, è condotta anche con riferimento ai procedimenti complessi e ad altri profili quali la legittimazione a sollevare l’eccezione di nullità, anche d’ufficio, evidenziando quelle asimmetrie che caratterizzano l’intera disciplina. Asimmetrie che, essendo all’origine di un trattamento sperequato, tanto sul piano processuale quanto sostanziale, risultano di dubbia costituzionalità. L’analisi intercetta anche il provvedimento adottato a conclusione della conferenza di servizi, in particolare con riferimento al dissenso, anch’essa densa di profili di criticità che, nell’insieme, portano a dubitare fortemente della satisfattività della sua disciplina.

The enigma of the nullity of administrative decisions

Starting from a historical framework of the invalidity of administrative decisions, the paper analyses the stages that led to the provision, in the context of the law on administrative procedure, of the nullity in its multiple configuration, and identifies the main criticalities and differences with respect to the civil law regulation, especially after the entry into force of the Code of the Administrative Trial. A regulation that, upon careful reading, has transformed nullity into a reinforced annulment, leading, among other things, to the dangerous elimination of nonexistence. A critical reading of the Administrative Trial regulation, also in the light of the most recent jurisprudential arrests, is also conducted with reference to complex proceedings and profiles, such as the legitimacy to the exception of nullity, even ex officio, highlighting those asymmetries that characterize the whole regulation. Asymmetries which, being at the origin of unequal treatment, both on a procedural and substantive level, are of dubious constitutionality. The analysis also intercepts the decision that ends the multilevel decision process (so-called “conferenza di servizi”), in particular with reference to dissent, and its criticalities that, added to the others on the whole, lead to strongly doubt the adequateness of the regulation of the nullity of administrative decisions.

Una riflessione su Giambattista Vico e il diritto amministrativo

di Mario R. Spasiano 

Il contributo ha ad oggetto l’esame di due elementi fondativi del diritto amministrativo, quali il concetto di auctoritas e l’esercizio del potere pubblico, così come declinati nel pensiero di Giambattista Vico. L’Autore analizza, in particolare, le ragioni che secondo l’impostazione vichiana giustificano l’esercizio del potere da parte dell’Autorità, sottolineando il ruolo di compartecipe riconosciuto al cittadino, chiamato a rispettare il precetto normativo in funzione di partecipazione civica. In questa prospettiva, l’Autore afferma che nel pensiero di Vico l’adozione di “comandi” (oggi provvedimenti) da parte dell’Autorità trova la sua ragion d’essere unicamente nella incapacità dell’uomo di rispettare autonomamente i precetti della legge (naturale). Anche in Vico, in altri termini, lo Stato esercita il potere sovrano in quanto unico tutore degli interessi generali, ma questi ultimi rappresentano il riflesso degli interessi naturali propri dei singoli individui, collocando, così, l’uomo al centro dell’ordinamento in piena coerenza con la visione etica e trascendente dell’esistenza propugnata dal filosofo.

Reflecting on Giambattista Vico and administrative law

This paper examines two of the main concepts of administrative law, namely “authority” and “exercise of public power”, as expressed in Giambattista Vico’s thought. The Author analyse the reasons that, according to Vico, justify the exercise of power by the Authority, underlining the role of co-participant recognized to citizens, respectful of the normative precept in function of civic participation. In this perspective, the Author states that in Vico’s thought the adoption of “commands” (administrative measures) by the Authority finds its justification only in citizen’s inability to independently respect natural law precepts. In Vico’s theory too, the State exercises sovereign power as the sole guardian of general interests, but the latter are the reflection of the natural interests of individuals: the citizen, in this way, is placed at the centre of the legal order, in full consistency with the ethical and transcendent vision of existence proposed by the philosopher.

Il Piano Nazionale di Ripresa e Resilienza e la riforma della giustizia

di Giuseppe Verde

Il contributo si sofferma sul tema delle riforme della giustizia per come prospettate nel Piano Nazionale di Ripresa e Resilienza (Pnrr). In particolare, lo studio riguarda alcuni aspetti problematici delle riforme del Csm e dell’ordinamento giudiziario. Nello scritto si analizzano le potenzialità delle riforme e si richiama l’attenzione del lettore anche su alcuni ostacoli legati alla dialettica politica in tema di giustizia.

The National Plan for Recovery and Resilience and the Reforms of the Judicial System

The Author describes how the Italian National Plan for Recovery and Resilience approaches the issue of reforms of the Judicial System. The article dedicates wide attention to the reforms of the High Council of  the Judiciary and of the rules of the judiciary, stressing their  potentials and showing that tones and contents of the political debate could hinder the reforming path.

Le costituzioni partecipate nell’area andina. Esperienze costituenti a confronto in vista dell’elezione dell’Assemblea costituente cilena

di Isabella M. Lo Presti  

Il presente contributo tra spunto dal vivace dibattito sul processo costituzionale attualmente in corso in Cile che manifesta già alcuni elementi procedurali precedentemente sperimentati in altri ordinamenti geograficamente e culturalmente affini, quali la Colombia, l’Ecuador e la Bolivia. Le esperienze scelte, oggetto di analisi, sono considerate come pioniere di un nuovo modello di processo costituente, affermatosi nell’area andina, nel quale la partecipazione popolare permea l’intera procedura di elaborazione della nuova norma fondamentale. L’analisi del carattere partecipativo dei processi costituenti analizzati si intreccia con un ulteriore profilo di indagine, inerente agli effetti che tali procedure partecipative hanno prodotto sul contenuto delle nuove costituzioni. È proprio a partire dalle esperienze costituenti esaminate, e da altre similari che hanno interessato l’area andina, che si è affermata una nuova “teoria della costituzione”, conosciuta come nuevo constitucionalismo andino.

The participatory constitutions in the Andean area. Comparing constitution-making experiences in sight of the Chilean constituent assembly

This contribution was inspired by the lively debate about the current constitutional process in Chile showing some procedural elements which have been previously experimented in other geographically and culturally similar systems, such as Colombia, Ecuador and Bolivia. The selected experiences under study are considered as the pioneers of a new model of constitution-making process which established itself in the Andean area and where citizen participation permeates the whole procedure for processing the new fundamental rule. The participatory character of the constituent processes under study is analysed and interwoven with a further investigation in the profile concerning the effects produced by such participatory processes on the content of new constitutions. It is exactly from the examined constitution-making experiences and from other similar ones involving the Andean area that a new “constitutional theory” has developed, known as “nuevo constitucionalismo andino” (new Andean constitutionalism).

La Corte Costituzionale si pronuncia in tema di comporto e “terapie salvavita”: crisi della fattispecie e innalzamento dei criteri interpretativi dalla legalità al diritto[1]

di Roberta Lombardi, Fabrizia Santini  

La decisione n. 28/2012 con cui la Corte Costituzionale risolve una importante questione di legittimità  dell’art. dell’art. 68 del T.U. n. 3/1957 legata al tema del comporto e delle terapie salvavita con riferimento ai docenti universitari, costituisce l’occasione per riflettere sulm ruolo interpretativo della giurisprudenza e alla difficoltà di individuare, nel sottile equilibrio tra storicità (rectius fattualità) e prevedibilità (rectius certezza) del diritto, quale dei due elementi far prevalere sui contrapposti piatti della bilancia della giustizia. Sia il giudice remittente sia la Corte Costituzionale, nella loro formulazione dei rispettivi atti giudiziari, sembrano accogliere l’idea che il diritto non è una nuvola che galleggia alta sul divenire sociale, ma nella complessità dei contesti in cui si riverbera, deve porsi in modo plastico e al contempo “umile” di fronte al mutamento e al nuovo che questo comporta. Condizione necessaria per conseguire il risultato di un diritto autenticamente umano e non imposto, come volontà potestativa, dall’alto.

The Constitutional Court judges on leave of absence and “life-saving” therapies: crisis of the case and improvement of the interpretative criteria from legality to law

The 28/2012 decision with which the Constitutional Court solves the important question of legitimacy of the article 68 of the T.U. (one text) number 3/1957 that focuses on the issue of sick leave  and intensive care for the University academic staff, provides the opportunity to reflect on the interpretative role of the jurisprudence and the difficulty of ascertain, within the fine equilibrium between historicity (factual rectius) and predictability (certain rectius) of the law, which of the two elements should prevail on the opposite plates of the scale of justice. Both the referring judge and the Constitutional Court, when they formulate their respective judicial acts, seem to accept the idea that the law is not a cloud that floats high above the social becoming. It should, instead, within the complexity of the issues in which it reverberates, be flexible and, at the same time ‘humble’ in the face of change and of the novelty that change entails. This is a necessary condition to achieve a law that is truly humane and not imposed, as a potestative will, from above.

Valutazioni tecniche e giudice amministrativo. Il caso delle comunicazioni elettroniche*

di Livia Lorenzoni  

Il contributo affronta, con un approccio prevalentemente empirico e orientato all’analisi casistica, il tema dei confini del sindacato giurisdizionale sulle valutazioni tecniche dell’autorità di regolazione in materia di comunicazioni elettroniche. Lo studio della recente giurisprudenza amministrativa sul tema fornisce un quadro variegato, nel quale orientamenti di maggiore deferenza si affiancano a posizioni favorevoli ad un sindacato penetrante. La materia oggetto di contenzioso, la relativa rilevanza, sostanziale e numerica, e gli interessi pubblici coinvolti nella fattispecie controversa, sembrano costituire elementi decisivi per indirizzare i giudici verso un atteggiamento maggiormente intrusivo rispetto alle decisioni tecnico-discrezionali dell’autorità. L’atteggiamento deferente, infatti, appare concentrato su fattispecie isolate in materie meno frequentemente oggetto di contenzioso. Il contributo contiene l’auspicio di una maggiore omogeneità nell’indirizzo giurisprudenziale, a beneficio, sia dell’autorità amministrativa sia dei privati operatori di mercato.

The Judicial Review on Technical Assessments. The Case of Electronic Communications

The essay deals with the boundaries of judicial review on the technical evaluations of the Italian Regulatory Authority on electronic communications. It follows an empirical approach, focusing mainly on the Administrative Courts’ recent case-law. The study provides a variegated picture, where deferent judgements coexist with more intrusive approaches. The subject matter of litigation, its relevance, both in substantial and numerical terms, and the public interests involved in the dispute, have shown to play a decisive role to direct judges towards a more intrusive attitude on the technical-discretionary decisions of the Authority. The deferent stance appears to prevail in isolated cases on matters that are less frequently object to lawsuits. The conclusion calls for greater homogeneity in the case law, to the benefit of both the administrative authority and private economic operators.

L'articolo Nuove Autonomie 1-2021 proviene da Nuove Autonomie.

Abstract

Il contributo ha ad oggetto l’esame di due elementi fondativi del diritto amministrativo, quali il concetto di auctoritas e l’esercizio del potere pubblico, così come declinati nel pensiero di Giambattista Vico. L’Autore analizza, in particolare, le ragioni che secondo l’impostazione vichiana giustificano l’esercizio del potere da parte dell’Autorità, sottolineando il ruolo di compartecipe riconosciuto al cittadino, chiamato a rispettare il precetto normativo in funzione di partecipazione civica. In questa prospettiva, l’Autore afferma che nel pensiero di Vico l’adozione di “comandi” (oggi provvedimenti) da parte dell’Autorità trova la sua ragion d’essere unicamente nella incapacità dell’uomo di rispettare autonomamente i precetti della legge (naturale). Anche in Vico, in altri termini, lo Stato esercita il potere sovrano in quanto unico tutore degli interessi generali, ma questi ultimi rappresentano il riflesso degli interessi naturali propri dei singoli individui, collocando, così, l’uomo al centro dell’ordinamento in piena coerenza con la visione etica e trascendente dell’esistenza propugnata dal filosofo.

Reflecting on Giambattista Vico and administrative law

This paper examines two of the main concepts of administrative law, namely “authority” and “exercise of public power”, as expressed in Giambattista Vico’s thought. The Author analyse the reasons that, according to Vico, justify the exercise of power by the Authority, underlining the role of co-participant recognized to citizens, respectful of the normative precept in function of civic participation. In this perspective, the Author states that in Vico’s thought the adoption of “commands” (administrative measures) by the Authority finds its justification only in citizen’s inability to independently respect natural law precepts. In Vico’s theory too, the State exercises sovereign power as the sole guardian of general interests, but the latter are the reflection of the natural interests of individuals: the citizen, in this way, is placed at the centre of the legal order, in full consistency with the ethical and transcendent vision of existence proposed by the philosopher.

L'articolo Una riflessione su Giambattista Vico e il diritto amministrativo proviene da Nuove Autonomie.

INDICE
DOTTRINA

Ines D’argenio – El acceso a la justicia administrativa por “retardaciòn” – 5
Guido Corso – Le regioni a statuto speciale nel progetto di riforma costituzionale – 35
Salvatore Raimondi – La disciplina urbanistica nella regione siciliana, tra normativa regionale e normativa statale – 53
Mario R. Spasiano – Riflessioni in tema di trasparenza anche alla luce del diritto di accesso civico – 63
Felice Blando – Fine dell’atto politico? – 81
Flavio Guella – 9ariazioni della pressione fiscale da parte dello stato e conservazione del gettito tributario destinato agli enti territoriali. Le tutele per l’autonomia avverso aumenti del prelievo riservati al centro o riduzioni delle imposte non compensate – 97
Abiano Di Prima – Le trattative per le Intese con le Confessioni religiose, tra politica e diritto (osservazioni a margine dell’ordinanza n. 40 del 2015 della Corte costituzionale) – 131
JOsep Ramon Fuentes I Gasó Y Marina Rodríguez Beas – La incidencia de la reforma del régime local en la organización territorial de Cataluña – 155

GIURISPRUDENZA

Michele Russo – Dal valore di un illecito alla legalità come valore. Nuovi approdi giurisprudenziali in tema di occupazione acquisitiva – 187

Abstracts

L’ACCESSO ALLA TUTELA AVVERSO IL SILENZIO DELLA PUBBLICA AMMINISTRAZIONE

di Ines D’Argenio

Il silenzio amministrativo costituisce un fattore patologico, di negazione della stessa ragion d’essere dell’amministrazione. Il cittadino non può restare in balia del mancato esercizio del potere amministrativo. In questa prospettiva, lo scritto analizza l’evoluzione del silenzio nell’ambito della disciplina normativa in Argentina e l’esigenza di un’adeguata considerazione delle conseguenze che esso è in grado di generare.

CONSTITUTIONAL REFORM AND REGIONS WITH A SPECIAL STATUTE

by Guido Corso

The paper describes the history of the five regions with a special statute, born more than two decades before the ordinary regions, explaining the reasons of a continuous reduction of their prerogative. The main argument is the following. By opposing the claims of regions (ordinary and special) towards the State, the Constitutional Court has emphasized the State exclusive competences, delimiting the scope of the legislative matters reserved to the special regions by their own statutes. This trend is stressed by the project of constitutional reform which parliament is now discussing.

URBAN LAW IN SICILY BETWEEN NATIONAL AND REGIONAL LEGISLATION

by Salvatore Raimondi

The author, after having recalled the scope of the exclusive competence of the Sicilian Region on urban planning legislation, enshrined in article 14 of the Regional Statute, describes the limitations of that competence introduced by the case law of the Constitutional Court. Sicily has never made a comprehensive use of its competence, but it issued several laws, two of which are particularly significant: the regional law 71 of 1978 and the regional law 37 of 1985. The first operates a static reference to the State Law 10 of 1977, while the second set a dynamic reference to the State Law 47 of 1985. Therefore it is not easy to understand which provisions of the Consolidation Bill 380 of 2001 apply in Sicily. It would be desirable a reorganization of the Sicilian legislation on the subject.

CONSIDERATIONS ON TRANSPARENCY PRINCIPLE EVEN IN LIGHT OF THE CIVIC RIGHT TO ACCESS

by Mario R. Spasiano

Transparency principle has long since been considered a general criterion of the administration activity, but its rationale and implementation do not appear univocal. The traditional view finds its expression in the citizen’s right of access ex l.n. 241/1990, from the one hand, and in the duty of publicity which falls on public authorities, on the other hand. Both aspects aim at empowering citizens to understand public decision procedures, even in order to participate, and find clear limits in fundamental rights, such as the right of privacy. Meanwhile, the recent introduction of the Civic right of access seems to present a different (although compatible) concept of transparency, intended as a complete accessibility to the information concerning administration organization and activity, viewing in the transparency an instrument not of awareness and participation, but of citizens diffuse control.

IS THE “ATTO POLITICO” AT ITS END?

by Felice Blando

The institution of “atto politico” is well known – with different meanings – in several contemporary juridical system. The best notion of “atto politico” is as follows:“an act justified by the necessity of preserving the very existence of the State”. The Italian legislator, also after the passing of the Constitution, has remained loyal to the idea of excluding the area of “atti politici” adopted by the Government from the judicial scrutiny. The “Consiglio di Stato”, instead, has widened its check over the so called “atti politici”. This essay aims at proving that the crisis of the “atto politico” notion is due both to the present weakness and crisis of the politics itself and to a new inevitable tendency of the Italian juridical system. Its objective is to show that only a new approach which returns the politics the constitutional importance it deserves can give back the “atto politico” its traditional dignity.

CHANGES IN THE TAX BURDEN PROVIDED BY THE STATE AND CONSERVATION OF THE TAX REVENUE ALLOCATED TO LOCAL AUTHORITIES

SAFEGUARDS FOR THE TERRITORIAL AUTONOMIES AGAINST THE LEVY INCREASES RESERVED TO THE CENTRAL STATE OR AGAINST NOT–COMPENSATED TAX REDUCTIONS

by Flavio Guella

The article analyzes how the sovereign decisions on taxation can imply consequences to the regional and local government expenditure capacity, and which kind of protection for the quantity of local resources the legal system can provide for. The existence of a principle of proportional correlation between territorial resources and territorial competences in the Italian Constitution, so as in many other national systems and in the international standards, is translated in a principle of “compensation” of the national tax reductions, if such reduction affects the local expenditure (so that the changes in the tax burden provided by the State have to be harmonized with the conservation of the level of revenue allocated to local authorities). Such a safeguard for the territorial fiscal autonomy can be both realized against a levy increase reserved to the central State so as against a not–compensated tax reduction; in particular, even if sometimes the national legislator already provides with general clauses that compensate the reduction of regional and local taxes with new resources, in other cases – on the contrary – the quantity of resources is not preserved by the Parliament itself and the judicial review is not able to adequately settle such situations. The analysis of the case law, indeed, shows the existence of a restrictive approach in the constitutional adjudication of the decisions concerning the allocation of resources, founded on a overestimation of the burden of proof at the regional level and on a reductive use of the proportionality test.

THE NEGOTIATIONS FOR THE AGREEMENTS (INTESE) WITH THE RELIGIOUS CONFESSIONS, BETWEEEN POLITICS AND LAW (MARGINAL REMARKS ON CONSTITUTIONAL COURT, ORDER N. 40/2015)

by Fabiano Di Prima

Among the jurists is found the idea that the current “fibrillations” between politics and justice are similar to those that have characterised the Italian landscape of the 90’s, since they – yesterday like today – are generated by the same system’s thorny problems, and, signally, by the crisis of politics, that has a negative influence on the quality (irrationality) and quantity (excessive or insufficient) of the law produced by the Legislator. Appears paradigmatic in this latter sense the “clash” Executive vs Judiciary recently recorded in the field of the negotiations State/Churches in view of the Agreements (Intese), culminating in a “conflict of allocation of powers” (raised by the Government towards the Cassazione) declared admissible by the Consulta with the order n. 40/2015. The essay highlights the crucial incidence that the absence of key legal lines plays on the origins of the conflict upstream, which has led, on the one hand, to the affirmation of a governance praxis in the area with all the signs of the full freedom of decision-making of the Executive; and, on the other hand, to the occurrence – over time – of a jurisprudence unwilling to the domination of this praxis and ready to use the figure of the constitutional legality in lieu of the legal one, spotting a governance area jurisdictionally reviewable, for the protection of the collective religious interests protected by the Charta. In analysing the main points of the conflictual matter, the essay cultivates the hypothesis that – paradoxi-cally – the exact sentence (of the Consiglio di Stato) that has originated such matter, contained a considered solution likely to partially satisfy, but with tolerable sacrifices, the two opposing instances in question, configuring under the applicants groups, rather than a right to the opening of negotiations (that overflows the negotiating sphere), a right to a full investigation (that remains outside the actual negotiations).

L’INCIDENZA DELLA RIFORMA DEL REGIME LOCALE SULL’ORGANIZZAZIONE TERRITORIALE DELLA CATALOGNA

di Josep Ramon Fuentes i Gasó y Marina Rodríguez Beas

Questo testo, dopo aver presentato una descrizione sommaria del sistema istituzionale di organizzazione territoriale della Catalogna fissato dallo Statuto del 2006, analizza l’ impatto della riforma del governo locale spagnolo gestito dalla Legge 27/2013, di razionalizzazione e sostenibilità dell’Administrazione locale. Questa riforma è un altro tentativo, ma in sommo grado, di ricentralizzazione da parte dello Stato; precisamente in un momento in cui la transizione statale della Catalogna è discussa, in una Spagna in una profonda crisi politica e istituzionale

FROM THE VALUE OF A TORT TO LEGALITY AS A VALUE. NEW JURISPRUDENTIAL APPROACHES DEALING WITH “ACQUISITIVE OCCUPATION”

by Michele Russo

This article has been inspired by the will to research and analyse the administrative profiles and peculiarities of the Italian jurisprudential institute of “acquisitive occupation”, first introduced in our judicial system by the Supreme Court judgement n. 1464/1983. Starting with the analysis of the institute’s historical evolution, the article follows focusing on the compatibility between Constitution and the principles whose it is based on. The key question of the EDU Convention’s influence on our internal judicial system is deeply discussed, since it has been the cause of years of Supreme Court conflicting judgements. The Supreme Court judgement n. 735/2015 writes the final chapter of the story: the unlawfulness of the expropriation proceeding and the irreversible transformation of the private area doesn’t let the Administration gain its property, even in presence of a public utility declaration. The private citizen can ask for restitution in addition to the compensatory damages for the area’s utility loss. Final considerations deserve recognition to the value of the forward–looking Supreme Court’s work on the arduous research of a rightful balance between public and individual interests.

L'articolo Nuove Autonomie 1-2015 proviene da Nuove Autonomie.

Indice
Dottrina

Antonio Ruggeri – Noterelle in tema di affido di minori a coppie di omosessuali – 5
Sandro Amorosino – Il Piano Nazionale Anticorruzione come atto di indirizzo e coordinamento amministrativo – 21
Mario R. Spasiano – Alcune riflessioni sul sistema universitario – 33
Roberto di Maria – La legge regionale siciliana di istituzione dei “liberi Consorzi comunali”: brevi note critiche sul processo di riforma dell’ordinamento degli Enti locali (e di governo territoriale) della Regione siciliana – 43
Lucia Corso – Populismo: un vocabolo ed (almeno) cinque accezioni – 67
Pierangelo Grimaudo – Il sistema integrato dei servizi sociali tra livelli essenziali, ruolo delle Autonomie, principio di sussidiarietà orizzontale e logiche di costo – 95
Paolo Tanda – Gli Organismi Indipendenti di Valutazione nelle Pubbliche Amministrazioni: disciplina ed aspetti critici – 117
Francesco Follieri – “Conflitti” e “collisioni” tra norme: tre domande al prof. Robert Alexy – 157

Giurisprudenza

Bruno Di Giacomo Russo – Regioni e concorso pubblico – 171

Abstracts

SHORT REFLECTIONS ON CUSTODY OF MINORS TO SAME-SEX COUPLES

by Antonio Ruggeri

The paper analyses as, according to a literal interpretation of the relevant legislation, to the homosexuals couplet should not be given the possibility to have in custody minors. Such conclusion should be reconsidered in the light of the principle of the prevailing interest of the minor involved, according to which the notion of family could subject to a reassessment, at least with reference to the issues of custody of minors. If the rule which admits the custody of minors only for the married couples should be unchanged, it could be sometimes wiser to admit different solutions. One of them could be the possibility to admit the custody of a minor for an homosexual couple in the hypothesis in which one or both partners would have a consolidate relationship with the child. In any case should be a new legislation which expressly provides this possibility.

THE ANTI-CORRUPTION NATIONAL PLAN  AS ACT OF ADMINISTRATIVE DIRECTIVE AND COORDINATION

by Sandro Amorosino

The Anti-Corruption National Plan (PNA), approved in 2013, is an important instrument for the implementation of the Italian law against corruption, approved in 2012. This paper takes into exam its nature and role to conclude it is an act of administrative directive and coordination – defined “act of directive” – and highlights its deficiencies and limits of effectiveness.

SOME REFLECTIONSON THE ACADEMIC SYSTEM

by Mario R. Spasiano

This paper takes as its starting point the analysis of the main reasons behind the decline which affected the Italian academic system over the last 30 years. Several endemic factors led to register serious decrease of the importance of the university role in the society, also in consideration of the general disaffection of the public opinion. The author points out how, in this context, recent legislative reforms do not appear suitable to generate substantial changes to overcome the current situation of academic crisis. After focusing on several aspects of the legislation (public funds assignment system; budget rules; academic recruitment procedures; research and teaching evaluation criteria) the paper highlights the risk of a further decrease of the social and cultural role of Universities: Italian legislation does not define a new and competitive academic project for the future, but, rather, aims to limiting public spending and subject Universities activity to heavier (…) processes of evaluation and control.

THE SICILIAN LAW REGARDING THE CREATION OF THE “LIBERI CONSORZI COMUNALI”: A SHORT CRITIC ON THE PROCESS OF REFORM OF THE SICILIAN LOCAL BODIES OF GOVERNMENT (AND OF THE LOCAL GOVERNMENT AS WELL)

by Roberto Di Maria

The Sicilian Parliament has recently approved a text named «Istituzione dei liberi Consorszi comunali e delle Città metropolitane». Coming after other two laws, regarding the same subject matter – that is modifying, or else abolishing the intermediate level of government: the “Province” – such text takes place, on one side, among the legislative measures bound to pursuit the rationalization of public expenses and, on the other side, aims to improve the responsabilità of the Institutions on guaranteeing both civil rights and public services. This Sicilian legislative initiative – or better, the whole process of institutional reform – is the occasion, then, to analyze both the financial topics connected to the “spending review” and the more general questions, regarding the revision of the Italian multilevel system of government. Finally, it may be assumed a synthesis on role and functions of the “Province”, and on the opportunity of their abolishment as well.

POPULISM: ONE WORD AND (AT LEAST) FIVE MEANINGS

by Lucia Corso

The essay aims at proposing five meanings of the term populism and at identifying underlying assumptions common to all. By signaling the difference between the US and the European approaches to the concept of populism, it will be advanced the claim that the predominance of the negative meanings, typical of the European tradition, has its roots in a deep distrusts in ordinary people’s moral and political wisdom.

THE EVOLUTION OF THE SOCIAL SERVICES INTEGRATED SYSTEM BETWEEN “ESSENTIAL LEVELS”, TERRITORIAL AUTONOMIES, HORIZONTAL SUBSIDIARITY, AND COSTS

by Pierangelo Grimaudo

This paper deals with the evolutionary paths of the Italian Model of Social Services since the entry into force of the Republican Constitution until the recent reforms of 2000 (l. 328/2000) and 2002 (l. 289/2002). The Author criticizes the mechanisms of control and of public expenditure because they have lowered the levels of protection of all fundamental rights somewhat linked to social policies.

INDIPENDENT ORGANIZATIONS FOR THE EVALUATION IN THE PUBLIC SECTOR: DISCIPLINE AND CRITICAL ASPECTS

by Paolo Tanda

This paper investigates the synergy between the Independent Organizations for the Evaluation (Organismi Indipendenti di Valutazione – OIV, the so-colled supervisor people), the National Anti-corruption Authority for the evaluation and transparency of the Public Administrations, (Autorità Nazionale Anticorruzione per la valutazione e la trasparenza delle Amministrazioni Pubbliche – ANAC), the management system and the staff (executives and clerical). The last one is subjected to the monitoring and the supporting and not to a real control, which is peculiar to the systems and not to the people. This synergy is provided for by the complex system of measurement and evaluation of the performance introduced by the Legislative Decree n° 150/2009. It is pointed out how the legislator moved from the external auditing of the State Audit Court they moved to the financial auditing and to the operational auditing to come to the current performance internal auditing. Then it has been analyzed the competences – of the utmost importance for the complex system under examination – given to the Independent Organization for the Evaluation and to the connected uses related to how to determine the Public Administrations concerned with the organization of the OIV and with their real independence. Finally, the paper examines closely the system of rules provided for in the Legislative Decree n° 150/2009 as to the appointment of the members of the Independent Organizations for the Evaluation, as it is one of the most important aspects through which the decree of reform wants to guarantee the basic nature of independence of the OIV.

“CONFLICTS” AND “COLLISIONS” AMONG NORMS: THREE (PROVOCATIVE) QUESTIONS TO PROF. ROBERT ALEXY

di Francesco Follieri

The Autor discusses Alexy’s distinction between rules and principles and his theory about how collisions among principles and conflicts among rules are (or ought to be) solved by judges. The analysis is conducted in the light of two examples of rules defeasibility. The paper shows that the judge balances by proportionality test even when rules collide with other rules or with principles. And, at least in the case of rules defeasibility and teleological interpretation, judges decide by rules taking into account underlying values and interests: in these cases rules “become” Optimierungsgebote. So three questions artise: 1) Is conflict among rules just a matter of validity? 2) How can you distinguish conflicts between rules and collisions between principles? 3) Can you still distinguish rules and principles just because the latter are Optimierungsgebote?

L'articolo Nuove Autonomie 1-2014 proviene da Nuove Autonomie.

INDICE
Dottrina

Antonio Ruggeri – Verso una revisione della forma costituzionale dello Stato – 5
Mario R. Spasiano – Conflitto di interessi ed esercizio delle professioni – 45
Alessandro Morelli – Le diverse configurazioni dell’autonomia nei due ambiti funzionali dell’istruzione e della sanità – 63
Stefano Agosta – La responsabilità per danno ambientale nell’ordito di competenze tra Protezione civile e poteri prefettizi – 89
Marco Calabrò – La disciplina dei porti in Italia: caratteri, criticità e prospettive – 99
Matteo Pati – Alcune considerazioni sulla c.d. riserva di legge costituzionale in materia di immunità delle alte cariche dello Stato – 131
Valentina Prudente – In tema di partecipazione degli stranieri all’amministrazione locale – 149

Abstracts

TOWARDS A CONSTITUTIONAL REVIEW OF THE CONSTITUTIONAL FORM OF STATE

by Antonio Ruggeri

The paper analyzes the reasons and the targets of a possible constitutional amendment in the present political moment in Italy and the procedural alternatives this review might follow (art. 18 Cost. or a different procedure). For what concerns Tit. V, Part II of the Constitution every abstract division of normative powers between State and Regions taking with the proposal of restrain regional “concurring” legislative power is not good, as well as the proposal of a double catalogue of matters of regional legislative powers both “concurring” or “full” (also called “residual”) legislative power. The governmental constitutional amendment proposal seems highly problematic for what concerns the idea of regional autonomy and its artificial distinction in special and ordinary autonomy (it would have been better to define a plural and flexible with a “specialità diffusa”). It is necessary to correct the idea of autonomy, not as a power, but as a service to the community, in the supranational context, in which the Region can be an active subject, and at the state level, with a regional branch of Parliament and a new model of constitutional amendment procedure and a different structure of constitutional review of legislation when there are Regions and State which act in front of the Constitutional Court.

CONFLICT OF INTEREST AND PRACTICE OF PROFESSIONS

by Mario R. Spasiano

The aim of this article is, first of all, to give a correct and systematic legal framework to the not univocal conception of conflict of interest, underlining the several peculiarities connected to the different legal contexts (civil, public, criminal) where it can appear. In the light of the exam of legislation and judgments, arises that, in the civil context, the conflict of interest often emerges only in the presence of a real prejudice caused to another interest; while, on the contrary, in the public context is possible to find also conflict of interest hypotheses relevant in terms of mere potentiality. Once outlined the main systematic profiles, the author analyses the most interesting cases of conflict of interest emerging during the practice of professions, in particular the medical one. In this context, the current legislation is fragmentary and often does not allow the distinction between real or potential hypotheses of conflict of interest; so, the author affirms that there is a strong need of a more detailed regulation, also through the enhancement of the codes of conduct stated by each professional association, designated also to monitor the practice of professions liberty and fairness.

THE DIFFERENT CONFIGURATIONS OF AUTONOMY IN THE TWO FUNCTIONAL DOMAINS OF EDUCATION AND HEALTH

by Alessandro Morelli

The paper examines the constitutional principle of autonomy, with specific reference to education and health matters. Within the paper it is used the distinction between exclusive, non-exclusive and inclusive goods in order to distinguish between different ways for independent bodies to provide services. From such standpoint, the services related to education seem to be more inclusive than those related to the field of the health. However, according to the paper, the Constitution provides that each provider of services related to social rights must achieve the highest degree of inclusion as possible in the relevant historical context.

PREFECTURAL POWERS AND CIVIL PROTECTION IN THE FIELD OF ENVIRONMENTAL DAMAGE

by Stefano Agosta

On the issue of liability and compensation for environmental damage, the work begins with a sort of “flashback” to delineate limits and poker of the competent authority to the establishment of such damage in Italian system. The Legislative Decree no. 152/2006 sets up the central axis Government Minister for the Environment/Prefect: in particular, the Prefect largely gets involved with establishment and resulting amount of environmental damage because the usually functions as deputy commissioner for the emergency, according to the provisions of Law no. 225/1992. Anyway, some gray areas appear to go on respect to full compliance of the Constitution (in particular, for example, into governance, center-periphery relationships and legal sources system, above all): they go in spite of the recent restrictive of Prefect’s necessary and urgent power reform of Civil Protection (in this way, Decree Law no. 59/2012 approved, with amendments, by Law no. 100/2012).

THE ITALIAN PORT LEGISLATION: FEATURES, CRITICAL ASPECTS, AND PROSPECTS

by Marco Calabrò

The current Italian national port legislation (l.n. 84/1994) appears by now, from several perspectives, unsuitable to a modern idea of port, as “passage” of economic trades, element of a wider logistic chain. This article – even through the exam of an interesting draft bill recently presented to the Parliament – intends to underline the main critical aspects of the mentioned legislation (concerning, for example, the unclear role of the Port Authorities, the complexity of the port planning model, the lack of a sufficient logistic system, etc.), pointing out possible legal solutions able to increase competitiveness and effectiveness of Italian harbours, which to this day shows a relevant deficit compared to the North Europe and Mediterranean ports.

THE ISSUE OF THE RESERVE OF CONSTITUTIONAL LAW ON THE IMMUNITY OF THE “HIGH CHARGES” OF THE STATE

by Matteo Pati

The present paper aims to illustrate – in its essential points – the vexata quaestio concerning the existence in the constitutional Text of constraints for the ordinary legislator to extend the derogations from the ordinary law in favor of the supreme political organs of the State. Starting from a rational positioning of the constitutional prerogatives within the system of the Charter, the latest regulatory actions will be commented in the light of the case law and the prevailing doctrinal positions, in order to propose a constitutionally-oriented reading of the “protective” mechanisms provided by the republican Constitution. This purpose will be reached by taking into account the different constitutional values and principles involved, trying to provide a balance between them, that may conform to the democratic structure of our constitutional order and identifying, consequently, the extent of the limits imposed on their vision.

LOCAL GOVERNMENT AND POLITICAL PARTICIPATION OF STRANGERS COMING FROM NON-EU COUNTRIES

by Valentina Prudente

The cultural and social integration of strangers in the life of the community in which they live, is brought to the exercise of democratic rights granted to citizens residents. In the Italian system is still an open question about the attribution of voting rights to immigrants from non-EU countries, but at the same time new forms of participation have emerged at the local level. This paper examines the current state of our legislation and some case studies about experienced participation at the level of local government.

L'articolo Nuove Autonomie 1-2013 proviene da Nuove Autonomie.

Fascicoli 1/2011

Pdf

INDICE

Editoriale di Francesco Teresi – 3

DOTTRINA

INÉS A. D’ARGENIO – La justicia administrativa en Argentina – 7
GUIDO CORSO – Pubblico e privato nelle politiche sanitarie – 17
ANTONIO RUGGERI – Unità-indivisibilità dell’ordinamento, autonomia regionale, tutela dei diritti fondamentali – 25
MARIO R. SPASIANO – Derechos fundamentales y justicia administrativa – 51
IVAN DEL GIUDICE – L’AGCM e la tutela del consumatore: i profili funzionali a protezione di posizioni giuridiche deboli” alla luce dei nuovi poteri attribuiti dai decreti legislativi nn. 145/2007 e 146/2007 – 61

GIURISPRUDENZA

ALFONSO CELOTTO – L’inutile parametro dell’art. 138 Cost. – 83
GIUSEPPE VERDE – Il conflitto di attribuzione fra enti non risolve i dubbi di legittimità costituzionale della legge regionale siciliana in tema di incarichi dirigenziali. Considerazioni a margine della sentenza della Corte costituzionale n. 156 del 2011 – 89

RASSEGNE

Rassegna della giurisprudenza del Consiglio di Stato. Speciale in tema di accordi tra amministrazioni e privati di SALVATORE DETTORI – 99
Rassegna della giurisprudenza dei Tribunali amministrativi regionali. Speciale in tema di accordi tra Pubblica amministrazione e privati di SARA FORASASSI – 111
Rassegna della giurisprudenza del Consiglio di Giustizia amministrativa per la Regione Sicilia (1 gennaio-30 aprile 2011)
di PAOLA SAVONA – 125

OSSERVATORIO ARS – 141

Abstracts

ADMINISTRATIVE JUSTICE IN ARGENTINA

By Inés A. D’Argenio

The purpose of the article is to outline the reasons why at the national level in Argentina, no procedural code was enacted to govern the judicial process in administrative matters. The analysis of the Constitution, of its precedents, and the characteristics of Argentina’s institutional system, is done by means of comparison whit the dual jurisdiction system of the European continental law and its principles of the contentious administrative jurisdiction. The institution of a system of judicial jurisdiction unique in Argentina, strange to the contentious administrative jurisdiction regime and the consequent absence of a statutory procedural code for the contentious administrative process, has enabled the development of public law litigation in the context of knowledge and causes decision referred to Article 116 of the Argentinean Constitution. In the context of this new litigation, the administrative act is no longer understood as the core of the administrative system, and it is prioritized the presence of other claims, being of extreme importance among them the sentence to the effective exercise of administrative function omitted by the public administration.

PUBLIC AND PRIVATE IN HEALTH CARE POLICIES

by Guido Corso

The paper analyzes the role of the private sector in the Italian health care system. According to art. 32 of the Constitution, the Republic safeguards health as a fundamental right of the individual and as a collective interest, and guarantees free medical care to the indigent. The provision, which entitles only the poor to free medical care, assumes the existence of a market in health care delivery, where the consumer-patient can choose between public and private operators. In 1978 a National Health System (Servizio Sanitario Nazionale, SSN) was established and it replaced the old one based on insurance. The reform created an universal system, in which every citizen has the right to be provided with health care services, regardless of the income. The statute allowed private providers to operate within the SSN given that they were compliant with a set of requirements and subscribed an agreement with the SSN. The role of private sector in health care delivery, limited and essentially subsidiary in the system created in 1978, has been increased by the reform approved in 1992 and 1993. The citizen is in principle free to choose a service provider, public or private. The law set the requirements necessary for the inclusion in the SSN (accreditamento), which are the same for public and private hospitals. The SSN bears the costs of the healthcare services. Due to budget constraints, the principle of patient’s free choice has never come entirely into effect. There is no “conventional” market in healthcare service, but a mixed system, in which the “buyers”, different form the “consumers”, choose on behalf of the patients/consumers the services to buy between the ones offered by competing operators.

UNITY-INDIVISIBILITY OF THE LEGAL SYSTEM, REGIONAL AUTONOMY AND THE PROTECTION OF FUNDAMENTAL RIGHTS

by Antonio Ruggeri

The purpose of this paper is to point out that, due to its nature, the regional autonomy aims at offering a service to the community and mostly to the individual’s fundamental rights through the implementation of the constitutional provisions that recognize them. The Statutes, as to organization and the laws, as to the subjects falling into the regional sphere of competence, provide such an implementation. Finally, this contribution addresses the major shortcomings brought to light by the practical experience, which shows that the autonomy has failed, to provide the protection of fundamental rights required by the Constitution.

FUNDAMENTAL RIGHTS AND ADMINISTRATIVE COURT

by Mario R. Spasiano

The article takes as its starting point the view that in the modern legal systems there is recognition of a growing range of fundamental rights, especially by the jurisdictional power. The author points out that in this context it is necessary to avoid that the multitude of values, not always adequately substantiated, doesn’t allowed the real protection of traditional and universally recognized fundamental rights. Therefore, legislative power must set in positive rules the absolute values of each legal order, not allowing the jurisprudence to carry out a dangerous supplementary role. Then the paper provides an in-depth description of the evolution of the relationship between fundamental rights and administrative court. For a long time to this judge wasn’t recognized possibility to protect fundamental rights, essentially because the exercise of public power was considered incompatible with the same existence of a fundamental right. Only from 2007, Constitutional Court before and Consiglio di Stato and Cassazione after, began to affirm that if a fundamental right is prejudiced by public activity, it should be recognized by the administrative court jurisdiction. Finally, author intends to verify if administrative court has the adequate instruments to effectively and efficiently protect fundamental rights, concluding that – following the passage of the new Administrative Trial Code (d.lgs. n. 104/2010) – this judge now has a set of investigation tools, able to guarantee a real and full protection, also in tricky field as that of fundamental rights.

“A.G.C.M. AND THE CONSUMER PROTECTION: THE PROTECTION OF WEAK RIGHTS IN NEW LEGAL INSTRUMENTS

PROVIDED FOR D.LGS. NN. 145/07 AND 146/07”

by Ivan Del Giudice

The present study concerns the competences assigned to the AGCM to protection of the consumer, intended as category and not as individual, recognizing in those powers the lines of the public function executed to guarantee, also within the competitive market, the weak subjective positions in the comparison with the economic operators. It analyzes then the relationship of such function with that practiced by the judge.

L'articolo Nuove Autonomie 1-2011 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

Editoriale di Giuseppe Verde – 3

DOTTRINA

PAOLO DELL’ANNO – Le trasformazioni del diritto ambientale – 7
GUIDO CORSO – MARIA CRISTINA CAVALLARO – Il sindacato giurisdizionale della Corte dei Conti sull’atto amministrativo – 17
ANTONIO RUGGERI – Composizione delle norme in sistema e ruolo dei giudici a garanzia dei diritti fondamentali e nella costruzione di un ordinamento “intercostituzionale” – 29
FABIO SAITTA – Dalla Filippica di Einaudi alla riforma Gelmini: il punto dopo mezzo secolo di discussioni sul valore legale dei titoli di studio – 59
MARIO SPASIANO – Riflessioni sparse in tema di semplificazione amministrativa – 75
MARCO CALABRÒ – La presunta natura giuridica ibrida del ricorso straordinario al Capo dello Stato: tra amministrazione e giurisdizione – 87
TULLIO FENUCCI – Il federalismo negli USA e in Germania: due modelli a confronto – 105
ANNA LAZZARO – Strumenti e sedi della collaborazione tra enti. Una di sciplina da definire– 133

GIURISPRUDENZA

CORTE COSTITUZIONALE sentenza 15-23 dicembre 2008, n. 438 con nota di ELISA CAVASINO – 165
CORTE COSTITUZIONALE sentenza 4-8 maggio 2009, n. 149 con nota di GIOVANNI SCALA – 177
CONSIGLIO DI GIUSTIZIA AMMINISTRATIVA PER LA REGIONE SICILIA sentenza 9 dicembre 2008, n. 1005 con nota di SIMONA BALZANO – 187

OSSERVATORIO PARLAMENTARE REGIONALE – 201

RASSEGNE

Rassegna della giurisprudenza del Consiglio di Stato di SALVATORE DETTORI – 241
Rassegna della giurisprudenza del Consiglio di giustizia amministrativa per la regione Sicilia di CRISTIANO CELONE e LAURA TRIZZINO – 255
Rassegna della giurisprudenza dei Tribunali amministrativi regionali di SARA FORASASSI – 263

L'articolo Nuove Autonomie 1-2009 proviene da Nuove Autonomie.