Source: https://dirittiregionali.org/2012/07/09/d-l-n-952012-soppressione-e-accorpamento-delle-province-e-istituzione-ex-lege-delle-citta-metropolitane-le-novita-del-decreto-legge-sulla-c-d-spending-review/
Timestamp: 2017-11-19 10:26:07+00:00
Document Index: 87018804

Matched Legal Cases: ['art. 17', 'art. 18', 'art. 18', 'art. 17', 'art. 17', 'art. 23', 'art. 23', 'art. 17', 'art. 127', 'art. 23', 'art. 23', 'art. 17', 'art. 118', 'art. 18', 'art. 18', 'art. 24', 'art. 133']

[D.L. n. 95/2012] Soppressione e accorpamento delle province e istituzione ex lege delle città metropolitane: le novità del decreto legge sulla c.d. spending review | Diritti regionali
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[D.L. n. 95/2012] Soppressione e accorpamento delle province e istituzione ex lege delle città metropolitane: le novità del decreto legge sulla c.d. spending review
Pubblicato il 9 luglio 2012	di AM
Nella serata di venerdì 6 luglio, il Capo dello Stato ha firmato il decreto-legge n. 95 del 2012, recante «Disposizioni urgenti per la revisione della spesa pubblica con invarianza dei servizi ai cittadini» (c.d. spending review) e approvato in mattinata dal Consiglio dei ministri.
Tra le disposizioni del decreto, due intervengono sulla complessa questione dell’ente intermedio, dettando una nuova disciplina su province (art. 17) e città metropolitane (art. 18).
Da una prima lettura del testo appena pubblicato in G.U. (serie gen. 156/2012, suppl. ord. 141), le principali novità risultano le seguenti.
Il decreto reca un’articolata procedura di soppressione e accorpamento delle province, al fine di ridurne il numero. L’obiettivo dichiarato nel comunicato stampa di illustrazione del provvedimento è rappresentato dal dimezzamento delle province ad oggi esistenti, tuttavia il testo del decreto afferma soltanto che i criteri alla cui stregua dovranno effettuarsi gli accorpamenti devono far riferimento alla dimensione territoriale e alla popolazione residente. La dettagliata definizione di tali criteri è rimessa ad un provvedimento del Consiglio dei ministri, da emanarsi entro 10 giorni dall’entrata in vigore del decreto. Sono individuate due ipotesi eccezionali in presenza delle quali derogare a tali criteri: il caso delle province sede di capoluogo di regione; il caso delle province confinanti esclusivamente con province di regioni diverse da quella di appartenenza e con province destinate ad essere trasformate nelle città metropolitane disciplinate dal successivo art. 18.
A seguito dell’individuazione dei criteri per la soppressione, è previsto l’avvio di una procedura discretamente articolata ed attenta a coinvolgere regioni ed enti locali nell’applicazione di tali parametri e nella redazione dei piani di accorpamento.
Tale procedura prevede in sequenza:
– la trasmissione dell’atto contenente i parametri ai Consigli delle autonomie locali istituiti nelle regioni ordinarie (ovvero, in caso di assenza di CAL, ad equivalenti organismi di raccordo regione-enti locali);
– la deliberazione da parte dei CAL, entro quaranta giorni dalla trasmissione dell’atto governativo, del piano di riduzione e accorpamento relativo alle province della propria regione, il quale viene trasmesso entro cinque giorni al governo
– l’acquisizione da parte del governo, entro dieci giorni dal ricevimento del piano, del parere delle regioni interessate;
– la sostituzione delle deliberazioni regionali, nel caso in cui queste non vengano assunte, con il parere della Conferenza unificata;
– l’adozione da parte del governo, entro sei mesi dall’entrata in vigore della legge di conversione del decreto, di un «atto legislativo» di sua iniziativa contenente l’ordine di soppressione e accorpamento delle province sulla base delle deliberazioni regionali o, eventualmente, del parere della Conferenza unificata.
Nessuna procedura è definita per le regioni a statuto speciale, che tuttavia, entro sei mesi, devono adeguare il proprio ordinamento ai principi statali, «che costituiscono principi dell’ordinamento giuridico della Repubblica nonché principi fondamentali di coordinamento della finanza pubblica» (art. 17, comma 5). È naturalmente prevista una clausola di salvaguardia per le province autonome di Trento e Bolzano, cui non si applica la disciplina in discorso.
È al proposito interessante notare la significativa valorizzazione del ruolo dei Consigli delle autonomie locali, la cui sede di raccordo tra regioni ed enti locali viene individuata come quella più idonea ad assicurare un’effettiva partecipazione di tutti i livelli di governo alla revisione della geografia amministrativa della regione e, in particolare, attesa la natura monistica dell’organo e la sua caratterizzazione “difensiva” degli interessi comunali e provinciali, la partecipazione del sistema regionale degli enti locali. Parimenti, deve rilevarsi come il parere distinto della regione sia finalizzato a marcare eventuali differenze di posizioni tra il piano deliberato dal CAL e l’indirizzo regionale.
Si tratta con evidenza di una procedura ispirata a quella leale collaborazione, il cui mancato rispetto rappresenta (e ha negli ultimi anni rappresentato) una delle principali ragioni di dissenso degli enti locali rispetto agli interventi normativi statali in materia.
L’art. 17 si occupa anche delle funzione degli enti provinciali “sopravvissuti” alla riduzione, nonché dei loro organi di governo, segnando, da un lato, una conferma dell’ultimo intervento governativo sulle province recato dall’art. 23 del d.l. n. 201/2011 (c.d. “Salva Italia”) e, dall’altro lato, un rilevante superamento di quest’ultimo.
La norma, infatti, tiene anzitutto ferme le funzioni di indirizzo e coordinamento delle funzioni comunali di cui al predetto art. 23, comma 14, e stabilisce che in attuazione del comma 18 di tale articolo siano «trasferite ai comuni le funzioni amministrative conferite alle province con legge dello Stato fino alla data di entrata in vigore del presente decreto e rientranti nelle materie di competenza legislativa esclusiva dello Stato ai sensi dell’articolo 117, comma secondo, della Costituzione» (art. 17, comma 6); funzioni, queste ultime, che lo Stato individua con DPCM, emanato previa intesa con la Conferenza unificata. Al trasferimento ai comuni delle funzioni ex-provinciali deve corrispondere il trasferimento dei beni e delle risorse necessarie a farvi fronte; l’individuazione e il trasferimento di questi beni e risorse avviene con DPCM, previa intesa con la Conferenza unificata e consultazione con le organizzazioni sindacali maggiormente rappresentative.
Alle province “sopravvissute”, invece, devono attribuirsi (in aggiunta a quelle di indirizzo e coordinamento succitate) funzioni di area vasta in materia ambientale (rectius «pianificazione territoriale provinciale di coordinamento nonché tutela e valorizzazione dell’ambiente, per gli aspetti [sic!] di competenza) e di strade e trasporti (rectius «pianificazione dei servizi di trasporto in ambito provinciale, autorizzazione e controllo in materia di trasporto privato, in coerenza con la programmazione regionale nonché costruzione, classificazione e gestione delle strade provinciali e regolazione della circolazione stradale ad esse inerente»). Ed è qui che si verifica quel superamento che pocanzi si accennava, poiché l’attribuzione di funzioni definibili come “proprie” della provincia in quanto ente di area vasta è – a nostro avviso – idonea a superare le più forti censure – non tutte – di costituzionalità che diversi ricorsi regionali ex art. 127 Cost. avevano appuntato all’art. 23 del c.d. “Salva Italia”. Infatti, atteso che la nuova disciplina dà senz’altro luogo a uno ius superveniens non senza effetti sui giudizi pendenti in Corte, essa può altresì ritenersi idonea ad armonizzare la legislazione statale a quella giurisprudenza costituzionale in materia di funzioni provinciali di cui alla sent. 238/2007 e all’ord. 286/2007 della Corte, particolarmente stridente con l’asserito svuotamento delle competenze provinciali generato dal citato art. 23.
Sotto questo profilo, la nuova disciplina è tale da garantire un nucleo di competenze indefettibili all’ente di area vasta, il quale prescinde dal ruolo che la legislazione regionale vorrà riconoscergli. Infatti, a tal proposito, l’art. 17, comma 11, ha cura di specificare che restano ferme le competenze regionali di indirizzo e coordinamento nelle materie di potestà concorrente o residuale, nonché le funzioni esercitate ai sensi dell’art. 118 Cost., richiamando il quale viene implicitata la facoltà delle regioni di conferire alle “nuove” province le funzioni amministrative ricadenti in quelle aree di potestà legislativa – circostanza implicata dalla disciplina costituzionale delle funzioni amministrative, che tuttavia è, significativamente, oggetto di costante esplicitazione ad esempio nelle varie versioni del d.d.l. sulla c.d. Carta della autonomie (attualmente A.S. 2259).
Infine, va messo in rilievo che il decreto conferma la scelta del legislatore dello scorso dicembre, orientata alla trasformazione delle province in ente di secondo grado, espressione dei comuni compresi nel relativo territorio. Sotto questo profilo, conservano attualità le censure di costituzionalità formulate sulla base dell’asserita necessaria legittimazione democratica diretta dell’ente.
Come si diceva in apertura, il decreto-legge n. 95/2012, all’art. 18, interviene sulla disciplina delle città metropolitane e, anche su questo fronte, le novità sono di primario rilievo.
Due le innovazioni “di metodo” che meritano una prima sottolineatura:
– la norma dispone (in via generale dal 1° gennaio 2014) l’istituzione ex lege delle città metropolitane ivi identificate e la contestuale soppressione delle relative province, sottraendo alla disponibilità del comune capoluogo e della provincia interessati una facoltà di scelta finora d’ostacolo alla creazione di questo ente costituzionale “virtuale”;
– la norma dispone l’abrogazione delle discipline coesistenti e concorrenti di cui al TUEL (artt. 22 e 23) e alla legge n. 42/2009 (artt. 23 e 24, commi 9 e 10).
Si tratta di due elementi che perseguono decisamente il superamento delle impasses e dei veti incrociati che hanno finora impedito l’istituzione dell’ente, che dopo la legge n. 42/2009, peraltro, poteva trovare riferimento in due modelli legislativi diversi parimenti valutati come scarsamente efficaci.
Al proposito, risulta interessante – nonché da valutarsi più attentamente oltre questa prima lettura – la ricomprensione di Roma tra le città nominate dall’art. 18, comma 1, e la contestuale abrogazione della disciplina (di per sé transitoria, ma idonea a perpetuarsi proprio in virtù delle norme qui abrogate) contenuta all’art. 24, commi 9 e 10, legge n. 42.
Altra sottolineatura deve riguardare la configurazione della città metropolitana come ente di secondo livello, tendente più ad acquisire le funzioni di area vasta della provincia – ferma la possibilità per i comuni esterni all’area metropolitana di aggregarsi alle province limitrofe ex art. 133 Cost. – e ad assumere quelle peculiari del governo metropolitano, che a sovrapporsi con i comuni in essa associati, i quali conservano una propria autonomia. Infatti, è data la possibilità – salva la prima applicazione – che il sindaco metropolitano non coincida con quello del capoluogo e che i rapporti tra città metropolitana e comuni in essa associati siano regolati dallo statuto dell’ente. È rimessa allo statuto altresì la possibilità di stabilire o meno l’elezione diretta del sindaco metropolitano, ferma invece l’elezione di secondo grado del consiglio metropolitano, sul modello della “nuova” provincia.
Questa voce è stata pubblicata in Province, Riforme e contrassegnata con accorpamento province, soppressione province, spending review. Contrassegna il permalink.
166 risposte a [D.L. n. 95/2012] Soppressione e accorpamento delle province e istituzione ex lege delle città metropolitane: le novità del decreto legge sulla c.d. spending review
enzo de biasi ha detto:
10 luglio 2012 alle 4:35 pm
è dal tempo del ministro Minghetti-Governo Cavour che attendo l’abrogazione della Provincia, chissà è forse la volta buona??? almeno per una prima riduzione ?? chissà chi lo sa ??
14 luglio 2012 alle 10:29 pm
Complimenti per la lucida e chiara spiegazione del decreto legge. Molti giornalisti, politici, blogger etc etc. dovrebbero farne uso prima di aprire bocca e dare fiato alle trombe. Grazie mi ha reso più chiare le idee.
16 luglio 2012 alle 12:13 pm
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una dipendente della Provincia di Roma
20 luglio 2012 alle 7:21 am
come ebbi a scrivere tempo fa, il tema di individuare solamente due livelli di governo locale venne posto già nel 1861 e ri-proposto nel 1972 dal PRI (Ugo La Malfa)dopo il varo delle Regioni. E’ indubbio che trascorsi 151 anni o 41 anni, scelga lei,le Province intese come ente intermedio di funzioni ultracomunali o sub regionale possono anche restare ma al cittadino non devono essere fatti gravare i costi per l’elezione diretta dei rappresentanti: Presidente, Giunta e Consiglio Provinciale. Quindi , a seconda della funzione (non degli interessi particolari dei dipendenti), sia la
Regione con criteri pedeterminati ad assegnare i compiti per i quali, data la natura e la specificità necessita un organismo intermedio gestito da dirigenti regionali oppure sia l’associazione dei comuni tramite amminsitratori già pagati dal comune di provenienza. L’importante è che in entrambi i casi, fatti salvi i servizi (e quindi i dipendenti sono utili allo scopo) , non vi siano costi aggiuintivi per la c.d. “governance” . Di conseguenza – a mio avviso e come già scritto in altri articoli-va rivisto anche l’assetto organizzativo dello stato apparato periferico cosi come andrebbero abrogate le Regioni a statuto speciale e ridotte le stesse a circa 12 (studio Fondazione “Agnelli” del 1992, venti anni or sono), abolito il Senato della Repubblica od al massimo mantenuto con un numero di 5 senatori per Regione per un totale di 60 e ridotti a 250 gli eletti alla Camera dei deputati. Il decreto legge dell’attuale governo, seppure in termini “modesti”, si muove nella giusta direzione. Purtroppo il fatto è che si sono persi almeno gli ultimi 40 anni per non riorganizzare lo Stato in tutte le sue articolazioni ed ora, more solito, sull’orlo della possibile bancarotta si deve fare ciò che per tempo e da tempo si doveva fare !!!
30 agosto 2012 alle 8:53 pm
La provincia di Piacenza verrà accorpata a quella di Parma; mi chiedo: ma i cittadini di Bobbio, attualmente Comune in provincia di Piacenza, piacentini a tutti gli effetti, diventeranno parmensi?
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