[Ricorso per legittimità costituzionale n. 124/2011] La Regione Puglia impugna la nuova normativa in materia di servizi pubblici locali di rilevanza economica

Con ricorso n. 124 del 2011, pubblicato in G.U. il 30 novembre 2011, la Regione Puglia ha impugnato la c.d. manovra di ferragosto (com’è noto, si tratta del D.l. n. 138 del 2011, convertito con modificazioni nella L. n. 148 del 2011), con particolare riguardo agli artt. 3 e 4, rispettivamente rubricati “Abrogazione delle indebite restrizioni all’accesso e all’esercizio delle professioni e delle attività economiche” e “Adeguamento della disciplina dei servizi pubblici locali al referendum popolare e alla normativa europea”. Nell’ambito della difesa regionale, pare opportuno segnalare la presenza dei Professori Ugo Mattei e Alberto Lucarelli, estensori del primo quesito (volto all’abrogazione dell’art. 23 bis del D.l. n. 112 del 2008) del referendum celebratosi lo scorso mese di giugno 2011.

L’art. 3 del decreto in oggetto dispone che “Comuni, Province, Regioni e Stato, entro un anno dalla data di entrata in vigore della legge di conversione del presente decreto, adeguano i rispettivi ordinamenti al principio secondo cui l’iniziativa e l’attività economica privata sono libere ed è permesso tutto ciò che non è espressamente vietato dalla legge”. Segue un elenco tassativo di ipotesi in cui il legislatore può intervenire per vietare l’iniziativa economica (ad es., quando vi sia la necessità di dare attuazione ai vincoli dell’ordinamento comunitario e agli obblighi internazionali). Detta norma viene poi qualificata quale “principio fondamentale per lo sviluppo economico” (art. 3, co. 2).

Secondo la Regione ricorrente, il citato art. 3 marginalizzerebbe la struttura della Costituzione economica, ponendosi in contrasto con i principi espressi dal Titolo V della Costituzione, in quanto “imporrebbe una scelta centralizzatrice e privatistica lontana dagli equilibri costituzionali vigenti”.

Più articolato risulta il ragionamento sviluppato attorno all’impugnazione dell’art. 4 del D.l. n. 138 del 2011, in materia di servizi pubblici locali di rilevanza economica, norma considerata dalla difesa pugliese “menzognera”, poiché lo Stato avrebbe confermato – tanto nel linguaggio utilizzato, quanto nella ratio e nel contenuto del disposto normativo – l’impianto complessivo dell’art. 23 bis del D.l. n. 112 del 2008, convertito nella L. n. 133 del 2008 e poi abrogato tramite il referendum del 12-13 giugno 2011, “tradendo di fatto l’esito del suddetto referendum”. Per quanto importante, non ci si soffermerà sulla questione (per la cui disamina si fa rinvio alle condivisibili considerazioni svolte da P. Sabbioni, Il ripristino della disciplina abrogata con referendum: il caso dei servizi pubblici locali di rilevanza economica, nel Forum di Quad. cost.), poiché la stessa esula dalle problematiche di interesse prettamente regionalistico e, peraltro, il contenuto della disposizione impugnata è troppo articolato per essere qui riportato o riassunto.

Per ciò che invece in questa sede interessa, la Regione Puglia sostiene che la disciplina espressa dall’ordinamento comunitario nella materia de qua sia “assai meno restrittiva di quella posta dall’art. 23 bis […] e ora, di quella risultante dal decreto de quo, decisamente orientato verso forme di gestione privatistica dei servizi […], al punto da mettere tra parentesi i modelli di gestione pubblica […]”. In altri termini, la ricorrente lamenta che lo Stato, in contrasto con le norme dell’Unione Europea, abbia operato una centralizzazione del potere decisionale in materia di servizi pubblici locali, comprimendo la possibilità per le autonomie di scegliere i modelli gestionali più consoni rispetto alle loro esigenze.

Dall’altro lato, la Regione ritiene che il settore dei servizi pubblici locali non possa essere ricondotto esclusivamente alla “tutela della concorrenza” di cui all’art. 117, co. 2, lett. e), Cost., dovendo altresì coinvolgere la competenza regionale, soprattutto quando, come nel caso dell’art. 4 impugnato, la disciplina risulti estremamente dettagliata.

Per tali ragioni, si afferma che “l’art. 4 straborda, per così dire, in su (verso l’Europa) ed in giù (verso le Regioni), in un tentativo di restaurazione del monismo giuridico statalista che di per sé non è più compatibile con l’ordine costituzionale vigente, fatto di una dialettica complessa fra Costituzione, Trattati Europei, obblighi internazionali e competenze riservate agli enti locali”.

Invero, così facendo, la ricorrente si inoltra in un terreno accidentato. Infatti, da un lato, l’Unione Europea lascia agli Stati membri la massima libertà nell’individuare il grado di apertura dei rispettivi mercati, ferma restando l’osservanza dei principi della concorrenza e della proporzionalità. Dall’altro, interventi statali in questo ambito trovano ampio supporto nella clausola trasversale della “tutela della concorrenza” che, come la Corte costituzionale ha statuito sin dalla sentenza n. 272 del 2004, abbraccia tutta la materia dei servizi pubblici locali di rilevanza economica.

Da ultimo, pare comunque opportuno per completezza segnalare che la norma impugnata presenta diversi aspetti di criticità, già messi in evidenza dalla dottrina (ad es., si rinvia ad A. Vigneri, La disciplina dei servizi pubblici locali nell’art. 4 della legge 148/2011. Brevi considerazioni sul nuovo quadro normativo, in http://www.astrid-online.it; id., Nota sulla bozza di maxiemendamento, relativa ai servizi pubblici locali economici, ibid.). Ma qui si entra in tutt’altro ambito, che esula dall’odierno ricorso: è il campo della discrezionalità legislativa, al più sindacabile sotto il profilo della ragionevolezza, ma del tutto estraneo alle problematiche inerenti l’eventuale lesione delle competenze regionali.

Alessandro Candido

(Università degli Studi di Milano)

Foto | Flickr.it

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