[Corte cost., sent. n. 297/12] Per riformare l’Isee è necessaria l’intesa

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Con la sentenza n. 297 del 2012, la Corte costituzionale ha dichiarato l’incostituzionalità dell’art. 5 del decreto “salva Italia” (d.l. 6 dicembre 2011, n. 201, convertito con modificazioni dalla l. 22 dicembre 2011, n. 214) nella parte in cui non ha stabilito che il D.p.c.m. per la revisione delle modalità di determinazione dell’indicatore della situazione economica equivalente (Isee) venga adottato previa intesa con la Conferenza Unificata.

In sintesi, la norma in esame ha previsto: a) l’emanazione di un D.p.c.m. per la revisione dell’Isee; b) la definizione, attraverso d.m., delle modalità di rafforzamento del sistema dei controlli dell’Isee; c) la determinazione (sempre con d.m.) dei criteri di riassegnazione al Ministero del lavoro e delle politiche sociali dei risparmi derivanti dall’attuazione delle nuove disposizioni.

La Regione Veneto ha contestato questa normativa (per un quadro completo in relazione alla questione di costituzionalità sollevata, cfr. qui), lamentando in particolare: a) l’assenza di un coinvolgimento delle Regioni nella procedura di definizione dell’Isee; b) l’illegittimità della norma (per eccesso di potere) nella parte in cui ha consentito la delegificazione al di fuori dell’art. 17 della l. n. 400 del 1988; c) il mancato coinvolgimento delle Regioni nella riallocazione dei risparmi statali.

La questione è di indubbia attualità: da un lato, perché è stata affrontata – in pratica – contestualmente al problema della compartecipazione alla spesa socio-sanitaria per il ricovero nelle RSA, sul quale la Corte è intervenuta con la decisione n. 296 del 2012 (per un commento a prima lettura, cfr. E. Vivaldi, A. Candido e F. Trebeschi); dall’altro, perché proprio in questi giorni la Conferenza Unificata sta valutando se raggiungere l’intesa sulla proposta di riforma dell’Isee presentata dal governo.

Nell’eventualità di un mancato accordo (l’ANCI e l’UPI hanno già espresso parere favorevole sul testo del D.p.c.m.), il quadro rimarrebbe – almeno per il momento –  molto incerto. Lo sa bene il Ministero del Lavoro e delle Politiche Sociali che, nel “Rapporto ISEE 2012”, pubblicato lo scorso 4 febbraio 2013, ha affermato che non è dato sapere l’esito di un’eventuale mancata intesa sul processo di riforma; infatti, “ai sensi della disciplina vigente, il Governo potrebbe comunque procedere con una deliberazione motivata, ma data l’imminente scadenza elettorale non è ancora chiaro quali saranno le decisioni e chi dovrà prenderle, tenuto anche conto del fatto che il testo necessita di un ulteriore parere, quello delle Commissioni parlamentari competenti” (v. qui, p. 9).

In questo intricato contesto, la Corte ha voluto comunque fissare un punto fermo in tema di Isee, stabilendo che, con l’art. 5 del decreto “salva Italia”, lo Stato ha violato il principio di leale collaborazione.

Muovendo dalla ricostruzione – ante e post riforma del Titolo V – dei rapporti tra Stato e Regioni in materia di servizi sociali, il giudice delle leggi ha sottolineato che “l’art. 117, secondo comma, lettera m), Cost., pone, in tema di LIVEAS, una riserva di legge che deve ritenersi rinforzata (in quanto vincola il legislatore ad apprestare una garanzia uniforme sul territorio nazionale) e relativa (in quanto, considerata la complessità tecnica della determinazione dei livelli delle prestazioni, essi possono essere stabiliti anche in via amministrativa, purché in base alla legge). La determinazione dei LIVEAS, poi, non esclude, come più volte sottolineato da questa Corte, che le Regioni e gli enti locali possano garantire, nell’ambito delle proprie competenze, livelli ulteriori di tutela […]” (Corte cost., n. 297 del 2012, 5.1.2 Cons. in diritto).

La normativa impugnata, prosegue la Corte, può certamente essere ricondotta nell’ambito della competenza trasversale di cui all’art. 117, co. 2, lett. m), Cost. che, incidendo fortemente sull’esercizio delle competenze legislative ed amministrative delle Regioni, è tale – salvo che in alcuni casi eccezionali, come ad esempio è accaduto nella nota vicenda sulla social card  (cfr. Corte cost., n. 10 del 2010) – da “esigere che il suo esercizio si svolga attraverso moduli di leale collaborazione tra Stato e Regioni” (ibid., 5.2 Cons. in dir.).

Insomma, poiché la determinazione dell’Isee, delle tipologie di prestazioni agevolate, nonché delle soglie di reddito di accesso alle prestazioni medesime incide sulla competenza residuale regionale in materia di servizi sociali, allora l’intesa con la Conferenza Unificata diventa necessaria.

Con riguardo invece alla seconda questione sollevata (concernente il fatto che la norma impugnata avrebbe introdotto un surrettizio regolamento di delegificazione), il giudice delle leggi ha dichiarato la cessazione della materia del contendere in virtù del menzionato ius superveniens, che ha subordinato l’abrogazione della previgente normativa sull’Isee al decorso di trenta giorni dalla data di approvazione dei nuovi modelli di dichiarazione dell’indicatore della situazione economica equivalente.

Infine, sul problema della riassegnazione dei risparmi ottenuti in conseguenza della modifica dell’Isee, la Corte ha sostenuto che, da un lato, sussiste la competenza esclusiva statale in materia di sistema contabile e finanziario dello Stato (ex art. 117, co. 2, lett. e, Cost.), dall’altro, invece, la competenza de qua non incide su alcuna delle competenze regionali. Pertanto, in quest’ultimo caso non vi è alcuna violazione del criterio collaborativo.

                                                                                           Alessandro Candido

Foto | Flickr.it

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