Legislative Delegation to the Executive in the ‘Second’ Italian Republic

Abstract

Considering the increasing quantitative usage and expanding qualitative scope of instruments of delegated legislations as the predominant means of enacting welfare reforms, this article investigates the consolidation throughout the Second Italian Republic of a new interpretation of executive prerogatives in the exercise of legislative functions. This is not only a problem in relation to the constitutional balance defining the relationship between the executive and legislature, but also an issue for executive policy leadership and capacity to steer the legislative process. It is argued that since the 1990s the usage of legislative decrees has become a sui generis and the predominant means of decision-making, adopted in particular for welfare reforms. In particular, delegated legislation to the executive has changed the impact that interest groups, such as trade unions, have on the policy process. Two case studies are presented by way of illustration, namely the health care reforms of the early 1990s and the education reform in 2003.

Notes

Notes

[1] The practice of delegating legislative powers by Act of Parliament can be traced back at least to Tudor times, the Statute of Sewers 1531 being generally regarded as the first significant example of enabling legislation.

[2] This point is made effectively by Philip Norton, who suggests that Grant's distinction between insiders and outsider groups is useful in the analysis of the relationship between parliaments and interest groups. Norton suggests that parliaments become ‘targets’ for groups that have failed to block a measure at an earlier stage. P. Norton (1999, p. 7).

[3] Article 143, Comma 4, of the Standing Rules of the Camera dei Deputati refers to the parliamentary procedure of control of executive acts, including decreti legislativi. This article was last changed on 20 July 1999.

[4] In Britain a statute may provide that an Instrument shall lie before Parliament for a specified period during which it is subject to a ‘prayer’ that it may be annulled. As Allen explains, the prayer is an address to the Sovereign, humbly praying that an Instrument may be annulled by Order in Council (Allen 1965). Most prayers emanate from the opposition and can always be defeated, if the Whips are alert, by the government majority.

[5] Hansard Society Report, 89–95.

[6] Immigration and Nationalisation Service v. Chadha, US Supreme Court.

[7] Decreto Legislativo no. 59, 19 February 2004, ‘Definizione delle norme generali relative alla scuola dell’infanzia e al primo ciclo dell’istruzione, a norma dell’articolo 1 della legge 28 marzo, no. 53’, published in the Gazzetta Ufficiale no. 51, 2 March 2004, Supplemento Ordinario no. 31. Article 7, Section 5 introduced the post of ‘tutor’ in primary school. Article 10, Section 5 introduces the tutor in secondary school. Confederazione Generale Italiana del Lavoro (CGIL), ‘La Contrattazione Nazionale’, Scheda 5.1, www.cgilscuola.it/moratti/schede/5.1.

[8] On 30 December 1992, the majority of medical associations, led by Federazione Italiana Medici di Medicina Generale (FIMMG-Italian Federation of General Practitioners), which was made up of 60,000 general practitioners, agreed to take every action to abolish the Amato decree. The creation of an abrogative referendum committee was then launched. For further details, see: ‘Al via il referendum contro la riforma sanitaria; I medici di famiglia minacciano il blocco’, Il Sole 24 Ore, 30 December 1992.

[9] The demonstration on 17 December represented the climax of many days of strikes and demonstrations. 30,000 doctors convened in the centre of Rome and were screaming slogans such as ‘buffone’ [fool] or ‘dimissioni’ [resign] and ‘sei come il mago di Napoli’ [you are like the wizard of Naples], alluding to underhand practices in the Minister's city of origin. See ‘Bloccata l’auto, insulti a De Lorenzo; in piazza 30 mila camici bianchi’, La Stampa, 17 December 1992.

[10] ‘I ministeri che cambiano – La responsabile della Sanità punta al ritorno allo Stato sociale’, Il Sole 24 Ore, 5 May 1993.

[11] For instance, the Health Care Committee in the Senate, on 27 October 1993, proposed that ‘regions can identify areas of activities for ambulatory specialists who require a public sector employment contract, after having consulted the major interest groups affected’. The government did partially adopt this amendment, maintaining the possibility for regional governments to identify new areas of health care services as necessary (Article 8, Legislative Decree, no. 517/1992), but the consultation of interest groups was not formalized in the final executive decree. Similarly, the Senate proposed an amendment to Article 15, regarding the dirigenza in the health care sector, for including an official member of the Federazione Nazionale Ordine dei Medici (FNOM) in the Committee recruiting the higher level of doctors, but this was not accepted. Another illustration of the government's rejection of professional organizations’ demands for greater institutional representation was its refusal to adopt the Chamber of Deputies’ Social Affairs Committee's amendment for the inclusion of FNOM at the negotiating table for bargaining employment contracts. The new decree allowed only trade unions to be present, thus excluding professional associations.

[12] Article 8, Section 8, Decree no. 517/1993.

[13] Prior to the 1992 reform there were three levels of dirigenza of the medical profession, as established by law no. 761 of 1979: the first level included assistant doctors (assistenti); the second one was composed of junior doctors (aiuto); and the third and higher one was made of heads of hospital divisions (primari). The reduction from three to two levels, established by the 1992 executive decree, meant in practice the exclusion of the first level, the assistant doctors, from dirigenza.

[14] Poggiolini, MP, Republican Party, Chamber of Deputies, Social Affairs Committee, 13 October 1993.

[15] Senators Perina and Garaffa lamented the continuation of clientelistic practice in the appointment procedures, Health Care Committee, Senate, 19 October 1993. The amendments to the Amato legislative decree were discussed in the Senate, 19–28 October 1993.

[16] Petrini, Chamber of Deputies, Social Affairs Committee, 7 July 1993.

[17] Sindacato Italiano Dirigenti dei Servizi Sanitari (S.I.Dir.S.S.-Italian Health Service Managers Union) ‘Considerazioni e proposte sui decreti legislativi di attuazione della legge di delega 23.10.1992, no. 421 in materia di Sanità e di Pubblico Impiego limitatamente alla Dirigenza del S.S.N.’, Chamber of Deputies, Hearing, 3 February 1993.

[18] Article 20 of the Executive Decree no. 29/1992 establishes that public managers (dirigenti) are responsible for the results of their activities, for which they must present a yearly report.

[19] There were approximately 40,000 ‘assistant doctors’ (assistenti) in 1993.

[20] Perina, Health Care Committee, Senate, 19 October 1993.

[21] Speech of the Minister of Health, Garavaglia to Chamber of Deputies, Social Affairs Committee, 7 July 1993.

[22] Speech of the Minister of Health, Garavaglia to Chamber of Deputies, Social Affairs Committee, 7 July 1993.

[23] Due to the internal conflict between rival independent unions representing different categories of doctors, the management board of FNOM, the top association of doctors, resigned on 15 June 1993.

[24] ‘Sfilano in 40mila’, La Stampa, 15 February 2004.

[25] ‘Scuola, migliaia in piazza “Lasciateci il tempo pieno”‘, La Stampa, 18 January 2004; ‘Scuola, centomila in piazza contro la riforma’, La Stampa, 18 January 2004.

[26] ‘No alla scuola supermarket’, La Stampa, 16 September 2003.

[27] Article 7 of ‘Schema di decreto legislativo concernente la definizione delle norme generali relative alla scuola dell’infanzia e al primo ciclo dell’istruzione, ai sensi della legge 28 marzo 2003, no. 53’, Ministero dell’Istruzione dell’Università e della Ricerca.

[28] Ibid.

[29] For the aims of the Moratti reform of primary education see, ‘Relazione Illustrativa allo Schema di decreto legislativo concernente la definizione delle norme generali relative alla scuola dell’infanzia e al primo ciclo dell’istruzione, ai sensi della legge 28 marzo 2003, no. 53’, Ministero dell’Istruzione dell’Università e della Ricerca. See also the speech by Valentina Aprea, Under-Secretary for Education, Camera dei Deputati, VII Committee, 20 January 2004.

[30] Legge Delega no. 53, 28 March 2003, ‘Delega al Governo per la definizione delle norme generali sull’istruzione e dei livelli essenziali delle prestazioni in materia di istruzione e formazione professionale’.

[31] Interview in La Stampa, 28 January 2004.

[32] Piera Castelli MP (Democratici di Sinistra-Ulivo) Camera dei Deputati, VII Committee, 20 January 2004.

[33] Antonio Rusconi MP (Margherita-Ulivo), Camera dei Deputati, VII Committee, 21 January 2004.

[34] See parliamentary acts for 12 and 13 January 2004, Camera dei Deputati, VII Committee. Formal hearings were held with most of the groups and associations pertaining to the school system, from the confederal trade unions to autonomous groups.

[35] Senator D’Andrea (Margherita-Ulivo) reports to the VII Committee the criticism raised by some interest groups, not politically affiliated to the opposition, regarding ‘the change of education from a public service to one based on individual demands’. Senate, VII Committee, 21 January 2004.

[36] Walter Tocci (Democratici di Sinistra), Camera dei Deputati, VII Committee, 20 January 2004.

[37] Luigi Illiano, ‘Il Governo dice sì ai 19 articoli che fanno scattare a Settembre il modello rinnovato di materne, elementare, e media’, Il Sole 24 Ore, 24 January 2004.

[38] Circolare no. 29, 5 March 2004, Ministero dell’Istruzione.

[39] CGIL, ‘La Contrattazione Nazionale’, Scheda 5.1, 20 October 2004, available at www.cgilscuola.it/moratti/schede/5.1.htm. In particular, Articles 24, 25, 26 and 27 of the Contratto Nazionale Collettivo del Lavoro (Collective National Labour Contract) are claimed to have been violated.

[40] Franco Bassanini, interview with Il Manifesto, 12 September 2004.

[41] Senator Gaburro, Unione dei Democratici Cristiani (UDC), VII Committee, 20 January 2004, 258th meeting.

[42] Michele Ranieli (UDC), Camera dei Deputati, VII Committee, 20 January 2004.

[43] Walter Tocci, Democratici di Sinistra-Ulivo (DS-U), Camera dei Deputati, VII Committee, 20 January 2004.

[44] Piera Capitelli (DS-U), Camera dei Deputati, VII Committee, 20 January 2004.

[45] Ibid.

[46] Senator Vittoria Franco (DS-U), VII Committee, 20 January 2004, 258th meeting.

[47] Senator Valditara (Alleanza Nazionale), VII Committee, 20 January 2004, 258th Meeting.

[48] Decreto Legislativo no. 59, 19 February 2004, ‘Definizione delle norme generali relative alla scuola dell’infanzia e al primo ciclo dell’istruzione, a norma dell’articolo 1 della legge 28 marzo, no. 53’, published in the Gazzetta Ufficiale no. 51, 2 March 2004, Supplemento Ordinario no. 31.

[49] CGIL Scuola, ‘La CGIL Scuola sulla riforma Moratti’, available on www.cgilscuola.it/moratti/la_clacgilscuola.htm.

[50] Speech by Minister Letizia Moratti to the Assembly of the Camera dei Deputati, 11 February 2003, 263rd meeting.

[51] CGIL, ‘Considerazioni sul Tutor’, 9 February 2004, available at www.cgilscuola.it/moratti/sperimentazionemoratti/tutor.htm.

[52] Unione Italiana del lavoro (UIL) Scuola, ‘Educazione e Scuola’, available on www.uil.it/uilscuola/web/notizie/links.