The independent Authorities represent a model of regulation that is foreign to the Italian legal tradition, and, for this reason, their legal positioning has aroused, and continues to arouse, doubts and uncertainties, re-proposing fundamental questions that appear to be anything but dormant. Furthermore, the dynamics connected to the functioning of the independent Authorities have shown a remarkable evolutionary capacity, so their role has undergone important changes, taking on different characteristics with respect to the functioning of the form of government, and involving new arrangements in relations with the organs of legislation, as well as with the organs of the jurisdiction. Functional autonomy, neutrality and independence, in fact, do not mean absolute separation from the circuit of the political direction, with which the decisions of the Authorities necessarily interface: the decisions of the Authorities, although adopted outside the logic of the political party, combine to form the legal system, not only with the production of acts attributable to “soft law”, but also through a concrete participation in the determination of the political-regulatory direction in the individual sectors of reference. The independent Authorities exercise heterogeneous competences, some typically administrative, some integrate decision-making functions, while, in other cases, their competences result in the production of juridical norms. This determines that they, by subtracting significant shares of activity from the political as well as from the jurisdictional bodies, are included in the decision-making powers in which the state apparatus is articulated, of which they constitute an indefectible structural side by material constitution . The independent Authorities occupy portions of statehood, no longer included in the traditional parliamentary model. At the base of the phenomenon we can identify the insufficiency of the classic system of separation of powers to resolve new questions, in which the high technicality intersects the problems of fundamental rights, projected against the background of economic and juridical scenarios animated by strongly evolutionary logics. This testifies that the state order, as it has evolved according to the schemes of representative democracy, has lost his completeness in the face of the evolution of the markets and the fundamental rights; hence the need to trace new organizational methods that go beyond the traditional cycles of political direction and responsibility: the structure of the material constitution has by now incorporated a type of regulation that representative democracy, not having the right tools to guarantee the proper functioning of complex sectional orders, cannot express. In this perspective, the legitimacy of the Authorities, based on the canons of procedural democracy that inform their functions, could be traced with reference to different constitutional formulas, responding to the schemes of participatory or deliberative democracy, which found alternative democratic models to the one built on political representation

Le Autorità indipendenti rappresentano un modello di regolazione estraneo alla tradizione giuridica italiana, e, per questo, la loro collocazione ordinamentale ha suscitato, e continua a suscitare, dubbi e incertezze, riproponendo questioni fondamentali che appaiono tutt’altro che sopite. Inoltre, le dinamiche connesse al funzionamento delle Autorità indipendenti hanno evidenziato una notevole capacità evolutiva, per cui il loro ruolo ha conosciuto importanti mutamenti, assumendo caratteristiche diverse rispetto al funzionamento della forma di governo, e comportando nuovi assetti nelle relazioni con gli organi della legislazione, oltre che con gli organi della giurisdizione. Autonomia funzionale, neutralità e indipendenza, infatti, non significano separazione assoluta dal circuito dell’indirizzo politico, con cui le decisioni delle Autorità si interfacciano necessariamente: le decisioni delle Autorità, pur essendo adottate al di fuori della logica partitica, concorrono a formare l’ordinamento giuridico, non solo con la produzione di atti riconducibili al “soft law”, ma anche attraverso una partecipazione concreta alla determinazione dell’indirizzo politico-normativo nei singoli settori di riferimento. Le Autorità indipendenti esercitano un coacervo eterogeneo di competenze, alcune tipicamente amministrative, alcune integrano funzioni decisorie, mentre, in altri casi, le loro competenze sfociano nella produzione di norme giuridiche. Ciò determina che esse, sottraendo quote significative di attività agli organi dell’indirizzo politico come a quelli della giurisdizione, si inseriscono nei poteri decisionali in cui si articola l’apparato statale di vertice, di cui costituiscono un versante strutturale indefettibile sul versante della costituzione materiale. Le Autorità indipendenti vengono così ad occupare vere e proprie porzioni di statualità, non più comprese nel tradizionale modello parlamentare. Alla base del fenomeno si può invero individuare l’insufficienza del sistema classico di ripartizione dei poteri dinanzi a questioni nuove, in cui l’elevato tecnicismo incrocia le problematiche dei diritti fondamentali, proiettati sullo sfondo di scenari economici e giuridici animati da logiche fortemente evolutive. Ciò testimonia che l’ordinamento statuale, così come si è evoluto secondo gli schemi della democrazia rappresentativa, ha perso ogni pretesa di esaustività dinanzi all’esperienza dei mercati e all’evoluzione dei diritti; di qui l’esigenza di tracciare nuove modalità organizzative che esulino dai cicli tradizionali dell’indirizzo e della responsabilità politica: la struttura della costituzione materiale ha ormai incorporato un tipo di regolazione che la democrazia rappresentativa, non disponendo degli strumenti idonei a garantire il corretto funzionamento di ordinamenti sezionali complessi, non può esprimere. In questa prospettiva, la legittimazione delle Autorità, sulla base dei canoni di democrazia procedimentale che informano lo svolgimento delle loro funzioni, potrebbe rintracciarsi con riferimento a formule costituzionali diverse, rispondenti agli schemi della democrazia partecipativa o deliberativa, che fondano modelli democratici alternativi a quello costruito sulla rappresentanza politica.

Spataro O (2019). Autorità amministrative indipendenti e istituzioni politiche: questioni problematiche. NUOVE AUTONOMIE(2), 227-266.

Autorità amministrative indipendenti e istituzioni politiche: questioni problematiche

Spataro O
2019-01-01

Abstract

The independent Authorities represent a model of regulation that is foreign to the Italian legal tradition, and, for this reason, their legal positioning has aroused, and continues to arouse, doubts and uncertainties, re-proposing fundamental questions that appear to be anything but dormant. Furthermore, the dynamics connected to the functioning of the independent Authorities have shown a remarkable evolutionary capacity, so their role has undergone important changes, taking on different characteristics with respect to the functioning of the form of government, and involving new arrangements in relations with the organs of legislation, as well as with the organs of the jurisdiction. Functional autonomy, neutrality and independence, in fact, do not mean absolute separation from the circuit of the political direction, with which the decisions of the Authorities necessarily interface: the decisions of the Authorities, although adopted outside the logic of the political party, combine to form the legal system, not only with the production of acts attributable to “soft law”, but also through a concrete participation in the determination of the political-regulatory direction in the individual sectors of reference. The independent Authorities exercise heterogeneous competences, some typically administrative, some integrate decision-making functions, while, in other cases, their competences result in the production of juridical norms. This determines that they, by subtracting significant shares of activity from the political as well as from the jurisdictional bodies, are included in the decision-making powers in which the state apparatus is articulated, of which they constitute an indefectible structural side by material constitution . The independent Authorities occupy portions of statehood, no longer included in the traditional parliamentary model. At the base of the phenomenon we can identify the insufficiency of the classic system of separation of powers to resolve new questions, in which the high technicality intersects the problems of fundamental rights, projected against the background of economic and juridical scenarios animated by strongly evolutionary logics. This testifies that the state order, as it has evolved according to the schemes of representative democracy, has lost his completeness in the face of the evolution of the markets and the fundamental rights; hence the need to trace new organizational methods that go beyond the traditional cycles of political direction and responsibility: the structure of the material constitution has by now incorporated a type of regulation that representative democracy, not having the right tools to guarantee the proper functioning of complex sectional orders, cannot express. In this perspective, the legitimacy of the Authorities, based on the canons of procedural democracy that inform their functions, could be traced with reference to different constitutional formulas, responding to the schemes of participatory or deliberative democracy, which found alternative democratic models to the one built on political representation
2019
Settore IUS/08 - Diritto Costituzionale
Spataro O (2019). Autorità amministrative indipendenti e istituzioni politiche: questioni problematiche. NUOVE AUTONOMIE(2), 227-266.
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Utilizza questo identificativo per citare o creare un link a questo documento: https://hdl.handle.net/10447/393382
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