Raffaele Picaro Archivi - Nuove Autonomie

Abstract
L’approvazione del d.lgs. n. 36/2023 ha segnato un momento decisivo nel processo di implementazione del BIM nell’ordinamento italiano. Il radicale mutamento di prospettiva si coglie non soltanto nell’abbandono del regime di progressiva obbligatorietà inaugurato dal d.m. n. 560/2017, ma soprattutto nell’intendimento di traghettare definitivamente il BIM nel contesto dell’information management. Il presente studio intende fornire un generale inquadramento del ruolo dei “metodi e strumenti di gestione informativa digitale” nell’ambito dei procedimenti pubblici d’appalto, tentando di intercettare le potenziali incognite poste dall’applicazione delle nuove tecnologie ai procedimenti di gara gestiti in BIM. Building Information

Modeling and digital management of the public contract life cycle in legislative decree no. 36/2023

The approval of legislative decree no. 36/2023 marked a decisive moment in the process of implementing BIM within the Italian legal system. The radical shift in perspective can be seen not only in the abandonment of the progressive mandatory adoption regime introduced by ministerial decree no. 560/2017, but above all in the intention of definitively bringing BIM into the realm of information management. This paper aims to provide a general overview of the role of “methods and tools for digital information management” within the framework of public procurement procedures, seeking to identify potential challenges arising from the application of new technologies to tender processes managed using BIM.

L'articolo Il Building Information Modeling e la gestione digitale del ciclo di vita del contratto pubblico nel d.lgs. n. 36/2023 proviene da Nuove Autonomie.

Nuove Autonomie 1-2021

Maria Immordino — Sun, 22 Aug 2021 17:48:30 +0000

Fascicolo 1/2021 – gennaio/aprile

Pdf

Acquista i 3 fascicoli in versione cartacea su Editoriale Scientifica

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

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.

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

Raffaele Picaro — Tue, 13 Jul 2021 15:53:02 +0000

Scarica il pdf

Abstract

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

L'articolo 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 proviene da Nuove Autonomie.

Nuove Autonomie 3-2018

Simone Pajno — Sun, 16 Sep 2018 10:54:00 +0000

Fascicolo 3/2018

Pdf

INDICE
DOTTRINA

Simone Pajno – Aspetti problematici delle norme di attuazione degli statuti speciali – 377
Cristiano Celone – L’ampio potere di regolazione dell’Autorità indipendente dei trasporti nel settore ferroviario – 411
Alessandro Cioffi – Il conflitto d’interessi negli appalti pubblici. A proposito dell’art. 42 del Codice – 457
Raffaele Picaro – Notazioni di ermeneutica contrattuale evocate dalla digitalizzazione dei processi costruttivi – 469
Vanessa Manzetti – La spending review immobiliare e la compensazione giudiziale. Riflessioni a margine dell’orientamento assunto dalla Corte dei conti – 513
Caterina Ventimiglia – Organizzazione e diritto alla salute, alla prova della regionalizzazione e dell’aziendalizzazione dei servizi sanitari – 533
Clara Napolitano – Il Social Impact Bond: uno strumento innovativo alla ricerca del suo diritto – 563
Giacomo Delledonne – Riforme elettorali e partiti politici europei – 593
Alessandro Di Martino – Le concessioni nel Codice dei contratti pubblici: profili di apertura al mercato e novità in tema di esecuzione del contratto – 617

Abstract
Problematic Aspects of the “Implementation Rules” of the Special Regional Statutes
by Simone Pajno

The aim of the essay is to deal with some problematic aspects of the “implementation rules” of the Special Regional Statutes, namely the noninvolvement of the Parliament in their approval procedure despite the primary level of this source of law in the hierarchy of norms. The special feature of the approval procedure of these rules is due to the deference towards the principle of territorial autonomy: as it is well known, the decision of the Council of Ministers must be based on the opinion of a State-Region joint committee. The essay holds that it is necessary to identify the role of the joint committee in the specific regional system considered, whereas, as far as the approval procedure of the implementation rules is concerned, the practice of legislation and constitutional case-law seems to underestimate the differences between the special regional statutes. Secondly, the essay criticizes the broad use of the “implementation rules” to regulate any issue concerning the Special Regions, even if outside the scope of the Statute, because the exception to the principle of the parliamentary source of the primary rules can be constitutionally justified only when the “implementation rule” considered is grounded in the special Statute. Finally, the essay suggests to reform the approval procedure of the “implementation rules” in order to assign the final decision to the Parliament, even though this decision will be based on the opinion of the joint committee. The wide regulatory power of the Independent Transport Authority on the railway sector by Cristiano Celone The National Independent Authority for Transport, imposed by European Law and established in Italy in 2013, is characterized by using wide powers of control, regulation and sanction, which cover all transport sectors. Regulatory competences seem in particular to interfere, in some areas, with the functions, also of political direction, of the State, Regional and Local Government, as well as the competences of the other administrative independent bodies such as the National Antitrust Authority or National Anti-Corruption Authority. This requires the provision of forms of coordination and cooperation beetwen those authorities, waiting for a clear actio finium regundorum by the national legislator, in order to avoid risks of conflicts between the activities of the various authorities or the adoption of contradictory or misaligned decisions and measures on the same issues. The paper will give a general outline of this type of independent regulation and the several public interests assigned to the Transport Authority, and, in particular, it will focus the attention on many regulatory competences of the Transport Authority on the railway sector, recently extended by the legislative decree n. 139/2018, as well as the content of the several measures adopted by the Transport Authority for the railway market, considered in the light of European
policy of market liberalization, establishing a single European railway area and promoting a safe, efficient, multimodal and sustainable trans-European transport network.

Public procurement and conflict of interest
by Alessandro Cioffi

Italian administrative Code for public Procurements sets new rules on conflict of interests. The aim is to protect competion, according to Eu principles, under the art 42. It provides to avoid any interest, as personal interest, economic interest or financial interest, that may influence the final goal. So the whole system involves the idea of what might be the position of public Administration relating to such kind of interests. Should it be considered out of any contact or not? The big deal is in determining final values and kinds of conflict. So real conflict or potential conflict, and several values, as competion or public interest, can play a big role in definition of the rule of law.

Contractual hermeneutics and information modeling in building and infrastructure industry
by Raffaele Picaro

Obligatoriness, even though gradual, of Building Information Modeling (BIM), imposed by law d.m. n. 560/2017, marks a radical change in the public tender calls context, with consequences within the construction industry chain, looking towards – also on the basis of an acquired international experience – the introduction of effectiveness and guarantee elements so far not observed in such a productive branch, as well as field testing of new job organization models deriving from qualifying technologies, with due regard to public demand, from which renovated occasions of economic facts awareness on behalf of juridical science will no doubt derive.

Spending review, public real estate and “judicialcompensation”. Reflections About the assumptions of italian Court of Auditors
by Vanessa Manzetti

The research work starting from the arguments carried out by the Regional Control Section for Piemonte of the Court of Auditors regarding the relationship between policies of public real estate spending review and “judicial compensation” (opinion No. 125 of 2018) is aimed at presenting some reflections on how the advisory function of the Court of Auditors may be of help to the good performance of the administrative action as introduced by the constitutional reform of 2012, which introduced budget balance and sustainability of public debt (articles 81, 97, 117, 119). On a methodological level the paper will start a reflection on the ratio underlying the measures of public real estate spending review, to then proceed to a re-reading of the spending review policies in the new constitutional context, considering that these, having any way reflected on the budget of the institution, must be placed within the constitutional reform of 2012. Finally, this will lead to investigate the role assumed by the Court of Auditors in the performance of its functions (consultative, control and jurisdiction) as a “natural interpreter” of the dynamism of public accounting.

Organization and right to health, to the test of regionalization and corporatization of health systems
by Caterina Ventimiglia

The contribution proposes an analysis of the effectiveness of the right to health, deepening the evolution of “regionalization” and “privatization of a stateowned company” of the National Health Service, in comparison with the marked regional differences (gaps) in the provision of Essential Levels of Assistance. The author researches the profile of the organization and of the financing of health services which take on a peculiar complexity in the health sector, in which there is the most complex experience of decentralization and also the introduction of fiscal federalism through the application of the requirement and the standard cost. For the purposes of overcoming health inequalities, the analysis proposes the territoryalization of the standard cost through the introduction of the socioeconomic deprivation index and considers fundamental the development of the health care company by enhancing the organizational autonomy and the introduction of an uniform system of internal controls on health services, including the detection of the quality perceived by the user, adequate to support the improvement of services and the uniform fulfillment of Essential Levels of Assistance.

Social Impact Bond: an innovative tool searching for its own law
by Clara Napolitano

The Social Impact Bond is a new financial instrument that shall be used for social purposes by public Administration. It is already present in other legal orders – such as the UK and USA, among the others – and it has been successful in saving public money in the field of social services. This kind of contract is atypical and not well-known in Italy, so the question we try to answer is how to import it without contrast with the Code of public contracts. The hypothesis carried out is that the Social Impact Bond could be an atypical form of public-private partnership (PPP), even if it presents characteristics that aren’t – at this time – perfectly super imposable to those foreseen for the PPPs. Therefore, two paths can be followed in order to sustain the compatibility of the Social Impact Bonds with the PPPs: large interpretation of the norms or intervention of the legislator.

Reform of the electoral law and European political parties
by Giacomo Delle donne

This essay aims to analyse how electoral system for European elections, and the discussion about their constitutional significance and reform, have contributed to shaping the legal status of the European political parties. The relationship between electoral laws, party systems and political party regulation is a locus classicus of constitutional law. In this respect, the peculiar character of the composite constitutional system of the European Union, in which supranational and national legal materials coexist, shows that the development of the European political parties and its autonomisation from national party systems is still an ongoing process.

Concessions in Public Procurement Code. Market opening aspects and novelties with regard to contract execution by Alessandro Di Martino

The purpose of this work is to examine concessions in the new Public Procurement Code, analysing, on the one hand, market opening aspects, and on the other hand, the novelties regarding contract execution. This analysis stems from a preliminary and fundamental observation, regarding the new understanding of concessions within the administrative system. Nowadays, we speak of “concessioni-contratto”, concluded with a partner, which allow to overcome the traditional idea of concessions as unilateral measures (expanding the legal sphere of individuals) by the public administration. After having analysed the specific features of concessions and procurement contracts, the focus then shifts on other elements from which it is possible to deduce, on the one hand, the wide margin of discretion of contracting authorities during the procedure for the awarding of concessions; on the other hand, the analysis focuses (above all) on two legal arrangements applicable to concessions, whose aim is to open up the awarding of works and services concessions to competition: the “avvalimento” (reliance on the capacity of other entities) and the application (established in case-law) of the rotating principle are instrumental to a further market opening to small and medium enterprises. Finally, this work analyses art. 177 of Public Procurement Code, which deals with the contacting out to third-party contractors by the concessionaires, by highlighting the main novelties which are to be welcomed, by focusing on its implementation issues, and, if practicable, by recommending a de jure condendo perspective.

L'articolo Nuove Autonomie 3-2018 proviene da Nuove Autonomie.

Nuove Autonomie 3-2017

Massimiano Sciascia — Sun, 10 Sep 2017 14:41:00 +0000

Fascicoli 3/2017

Pdf

INDICE
DOTTRINA

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

Abstract

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

by Massimiano Sciascia

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

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

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

by Raffaele Picaro

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

Unlawful Administrative Acts and State’s Liability

by Carlos Botassi

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

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

by Marco Angelone

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

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

by Viviana Molaschi

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

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

by Giuliano Taglianetti

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

Critics and perspectives on the generalised access to administrative documents

Criticità e prospettive per la disciplina del diritto di accesso generalizzato

by Anna Del Prete

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

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

by Alessandro Di Martino

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

Aspects of objective jurisdiction in the Spanish administrative procedural system

by Domenico Marrello

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

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

by Alberto Zito

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

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

by Salvatore Dettori

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

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