L’Italia e la Carta europea dell’autonomia locale (CEAL): il monitoraggio del Congresso dei Poteri Locali e Regionali del Consiglio d’Europa

Strasburgo, Consiglio d'Europa

Nel corso della 24esima sessione plenaria tenutasi a Strasburgo tra il 19 e il 21 marzo 2013, il Congresso dei Poteri Locali e Regionali del Consiglio d’Europa ha approvato la raccomandazione n. 337 (2013) avente ad oggetto la situazione della democrazia locale e regionale in Italia. L’ultima raccomandazione del Congresso in materia, la n. 35 (1997), era stata adottata prima dell’entrata in vigore della riforma del Titolo V.

La raccomandazione è l’atto finale di una procedura di monitoraggio politico sull’attuazione della Carta europea dell’autonomia locale (CEAL), trattato internazionale, firmato a Strasburgo il 15 ottobre 1985 e ratificato dall’Italia l’11 maggio 1990. Le raccomandazioni del Congresso sono rivolte al Comitato dei Ministri del Consiglio d’Europa (art. 2 § 5 CM/Res(2011)2) e si basano su un rapporto esplicativo (art. 2 § 3 CM/Res(2011)2), redatto da uno o due relatori, delegati politici del Congresso, sotto la supervisione di un accademico appartenente al Gruppo degli esperti indipendenti sulla Carta europea dell’autonomia locale (CG/GIE(20)2). Nel caso specifico, i relatori erano Knud Andersen (Danimarca, ALDE) e Marina Bespalova (Russia, PPE). Ad aver fornito l’assistenza tecnica è stato il professor Chris Himsworth, emerito di diritto amministrativo presso l’Università di Edimburgo (Scozia).

Nella prima parte della raccomandazione, il Congresso ha preso atto con soddisfazione: del radicamento del principio dell’autonomia locale nella Costituzione italiana; della riforma costituzionale del 2001 ed in particolare del nuovo art. 114 co. 1 Cost. che attribuisce pari dignità costituzionale a Comuni, Province, Regioni e Stato; dell’approvazione del decreto legislativo n. 23/2011 con il quale è stata disposta l’attribuzione agli enti locali di una quota di tributi nazionali in compensazione del taglio di alcuni trasferimenti; dell’approvazione della legge delega sul federalismo fiscale n. 42/2009 con la quale si è finalmente tentato di dare attuazione all’art. 119 Cost. definendo i principi fondamentali per il coordinamento della finanza pubblica e la perequazione fiscale.

Nella seconda parte della raccomandazione, il Congresso ha constatato con rammarico una serie di violazioni, senza tuttavia circostanziarle sempre in maniera dettagliata. Occorre riferirsi quindi al citato rapporto esplicativo per poter capire di quali violazione della Carta si tratti.

In particolare, (a) l’Italia avrebbe mancato di rispettare il diritto degli enti locali di amministrare, sotto la loro responsabilità, una parte importante degli affari pubblici, conformemente all’articolo 3.1 CEAL. Il Congresso sembra qui fare riferimento al caso delle Province e alle funzioni ad esse attribuite a seguito del doppio intervento legislativo della passata legislatura (DL n. 201/2011 e DL n. 95/2012). Come spiega il relatore, in realtà, vi sarebbe una violazione del combinato disposto dell’art. 3.1 e dell’art. 4.4 CEAL, nel senso che agli enti locali sarebbe preclusa l’amministrazione di una parte importante di affari pubblici nella misura in cui le funzioni ad essi attribuite non siano “complete” ed “integrali”. Purtroppo nessuna analisi argomentativa circa una tale violazione della Carta è svolta in sede di rapporto esplicativo, giungendo i relatori semplicemente ad affermare che: «In Charter terms, abrupt cuts in the funding of the systems if territorial government may have the effect of breaching not only Art. 9 but also Arts 3 and 4 (scope of functions discharged)» [§ 83]. A tale violazione si associa (c) quella relativa all’attribuzione a consorzi locali indipendenti delle responsabilità spettanti agli enti territoriali, ossia alla tendenza delle Regioni a creare «agencies to perform administrative functions which ought to rightly be performed by the provinces or municipalities» [§ 77]. Tuttavia, anche a tal proposito, non viene fornito alcun esempio concreto di violazione, né si rinviene un riferimento a leggi o regolamenti regionali che dispongano in tal senso.

In secondo luogo, il Congresso constata che (b) il principio dell’elezione diretta degli organi provinciali è rimesso in discussione, con l’introduzione di elezioni indirette per le province (Articolo 3.2 CEAL). Il rapporto sottolinea che il progetto di rendere la Provincia ente di secondo grado «would almost certainly have entailed a Charter violation. The provinces are local authorities for Charter purposes and Article 3 requires that councils be directly elected» [§ 38]. In realtà il ragionamento è più complesso, come si era cercato di dimostrare in passato. In altre parole, il requisito della “direttezza” dell’elezione andrebbe sempre posto in stretta connessione con l’esercizio di funzioni proprie ed esclusive da parte dell’ente locale. (Cfr. G. Boggero, La conformità della riforma delle Province alla Carta europea dell’autonomia locale, in Federalismi.it, ottobre 2012).

Un’ulteriore violazione della Carta (d) sarebbe inoltre rappresentata dalle riduzioni di personale e dal carattere arbitrario delle restrizioni finanziarie per i dipendenti degli enti locali (cd. “tagli lineari”) (Articolo 6.1 CEAL). I tagli lineari, stante il loro presunto carattere arbitrario, violerebbero cioè l’autonomia amministrativa e finanziaria degli enti locali. Anche qui manca tuttavia una dimostrazione limpida, a partire dalle norme della Carta e con un riferimento puntuale alle disposizioni legislative recanti le presunte violazioni. [§ 53-55]. Sempre con riferimento all’autonomia finanziaria (Articolo 9.1 e 9.2 CEAL), poi, il Congresso mette in luce l’inadeguatezza delle risorse di cui possono disporre liberamente gli enti locali nell’esercizio delle loro competenze, nonché il fatto che tali risorse non siano sempre proporzionate alle competenze previste dalla legge [§ 68].

Connessa a questo punto è poi la denuncia dell’insufficienza dei meccanismi e delle procedure di perequazione finanziaria a livello locale e regionale e la conseguente impari ripartizione degli oneri finanziari (Articolo 9.5 CEAL). Si legge nel rapporto: «Instead of being a vehicle for the implementation of fiscal federalism and a fair system for the distribution of State funds, equalization has also become a part of the system of cuts. Necessary though this may be thought to be, it risks the distortion of the project as a whole» [§ 65]. Senza contare l’assenza di meccanismi che consentano al governo di consultare gli enti locali in modo appropriato sulle questioni relative alle modalità di assegnazione delle risorse finanziarie (Articolo 9.6 CEAL), questione relativamente alla quale il rapporto evita tuttavia di dilungarsi. Infine, il Congresso denuncia che soltanto le Regioni (e non le Province, né i Comuni) hanno il diritto di presentare ricorso dinanzi alla Corte Costituzionale (Articolo 11 CEAL).

Sulla base di queste osservazioni, il Congresso ha raccomandato al Comitato dei Ministri di invitare le autorità italiane a: completare (a) la riforma del cd. federalismo fiscale; (b) garantire che una parte importante di affari pubblici sia regolamentata e amministrata dagli enti locali e regionali, le cui competenze devono essere complete e integrali (qui il riferimento implicito è alle province). Così come senz’altro concernente le future province è anche la raccomandazione di cui alla lettera (c), in base alla quale l’elezione dei rappresentanti degli enti locali deve essere diretta. Il Congresso si era già espresso in maniera non dissimile nell’ottobre scorso con la raccomandazione n. 333 (2012).

Non molto chiaro è, invece, l’invito (d) a rivedere la portata e gli effetti del trasferimento di responsabilità dai comuni ai consorzi (Articolo 4.4 CEAL). Tale invito pare ricollegarsi alle perplessità del Congresso circa le conseguenze applicative del principio di sussidiarietà orizzontale di cui all’art 118 Cost. Si legge infatti nel rapporto che non sarebbe ancora «wholly clear what this “horizontal subsidiarity” amounts to in practice but it does appear to be reflected in the growth in Italy of organisations/consortia at the local level which are quite separate from the local authorities per se. It is, therefore, possible that it even presents a challenge to the notion of the pre-eminence of local elected territorial authorities with defined powers, as secured by the Charter» [§ 26]. In altre parole, i consorzi incaricati di erogare alcuni servizi pubblici sarebbero una minaccia per la democrazia locale, in quanto enti funzionali e non territoriali. Tale paura sembra da ricondursi in parte al background culturale in cui opera il consulente giuridico, la Gran Bretagna, nella quale il dibattito sugli enti locali è dominato da tempo dalla questione se sia o meno democratico che la responsabilità per l’erogazione dei servizi pubblici locali non sia più dei soli local councils, ma di enti intermedi pubblico/privati, associazioni o società per azioni. Spiega, infatti, il rapporto al [§ 77] «such consortia take a wide variety of forms – from wholly public-controlled bodies to the use of private companies. There can be nothing inherently wrong with the contracting out of some service delivery to such consortia but we have gathered the very strong impression (from both local and central government sources) that the huge extent of their current deployment raises acute questions of accountability and potential impropriety».

Ulteriori raccomandazioni riguardano i già menzionati aspetti dell’autonomia finanziaria, al fine di prevenire gli effetti antidemocratici dei tagli lineari (e), garantire che gli enti territoriali dispongano sempre di risorse adeguate (f) e sviluppare un sistema di perequazione fiscale per gli enti locali e regionali più deboli (g). Per quanto riguarda la revisione dei meccanismi di consultazione degli enti locali (h), la raccomandazione evidenzia tale necessità solo con riferimento alla materia finanziaria, mentre il rapporto ne suggeriva la necessità anche con riferimento al mutamento dei confini territoriali [§ 52]. Infine, viene sottolineato l’invito (i) ad inserire in Costituzione il diritto per Province e Comuni di poter ricorrere direttamente alla Consulta.

In conclusione, vanno ancora menzionate le ultime due raccomandazioni di cui alle lettere (j) e (k). Con la prima, il Congresso si affaccia prudentemente in un campo, la lotta alla corruzione, non di sua stretta competenza, ma nel quale si era già avventurato con l’approvazione del Codice di comportamento sull’integrità politica degli eletti locali e regionali nel 1999. Con la seconda, invece, il Congresso invita l’Italia a ratificare il Protocollo Addizionale alla CEAL relativo al diritto di partecipare agli affari delle collettività locali, firmato sinora da quattordici Stati membri del Consiglio d’Europa e ratificato da tre.

Giovanni Boggero

(Università del Piemonte Orientale)

Foto | Flickr.it

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