The Trend Towards the Restitution of Cultural Properties: Some Italian Cases
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CHAPTER twenty-three THE TREND TOWARDS THE RESTITUTION OF CULTURAL PROPERTIES: SOME ITALIAN CASES Tullio Scovazzi* 1. The Basic Aspects of the Italian Legislation The importance of cultural heritage is rooted in the mind of the majority of Ital- ians. The unification of the country was first achieved in the cultural field, due to the Divina Commedia of Dante (1265–1321) and the literary works of Petrarch and Boccaccio (XIV century), written in the Italian language and not in Latin. The cultural dimension was strengthened by the great artistic tradition of the Renaissance and the Baroque styles which originated in Italy. The political uni- fication of the country followed much later, as the kingdom of Italy was pro- claimed only in 1861. One of the first instances of legislation in the field of cultural properties is a decision taken in 1602 by the grand duke of Tuscany, subjecting to a licence the export from the State of “good paintings” and prohibiting altogether the export of the works of nineteen selected masters, namely Michelangelo Buonarroti, Raf- faello Sanzio, Andrea del Sarto, Mecherino, Rosso Fiorentino, Leonardo da Vinci, Franciabigio, Pierin del Vaga, Jacopo da Pontormo, Tiziano, Francesco Salviati, Bronzino, Daniele da Volterra, Fra Bartolomeo, Sebastiano del Piombo, Filippino Lippi, Correggio, Parmigianino and Perugino.1 The legislation adopted in the Papal State at the beginning of the XIX century, in particular the edicts enacted respectively on 2 October 1802 and on 7 April 1820, set forth a number of fundamental principles that are reflected also in the legislation in force today. Private subjects have to declare to the State the cul- tural properties of which they were owners. The export of cultural properties is prohibited or subjected to an authorization, depending on the case. A register of * Professor of International Law, University of Milano-Bicocca, Milan, Italy. 1 See L. Parpagliolo, Codice delle antichità e degli oggetti d’arte, I, Roma, La libreria dello Stato, 1932, 51. 504 tullio scovazzi cultural properties located in the State is drawn up. The State is the owner of all archaeological objects found underground. After the unification of the country, general legislation in the field of cultural heritage was adopted and replaced by subsequent enactments, namely Law 12 June 1902, No. 185, on the conservation of monuments, antiquities and artistic objects, Law 20 June 1909, No. 364, on antiquities and fine arts, and Law 1st June 1939, No. 1089, on the protection of properties of artistic or historic interest.2 Pro- visions on cultural properties belonging to the State demesne can also be found in the civil code, approved by Royal Decree 16 March 1942, No. 262, and still in force today.3 After World War II, the Constitution of the Italian Republic, adopted on 27 December 1947, included the protection of landscape and of the historical and artistic heritage of the nation among the fundamental principles of the State (Art. 9, para. 2).4 In 1999 a general regime for the cultural heritage was set forth under Legislative Decree 29 October 1999, No. 490, called Single Text on Cultural Prop- erties, later replaced by Legislative Decree 22 January 2004, No. 42, called Code of Cultural Properties and Landscape. This enactment is composed of 184 articles and, as modified by subsequent amendments, is in force today.5 The main aspects of the Italian regime on ownership and movements of cul- tural properties, as resulting from the Code of Cultural Properties and Landscape, are the following. The cultural properties that belong to the State, the regions and the other public territorial entities (provinces or municipalities) form the cultural demesne (Art. 53). The most important among them, including archaeological areas and collections of museums, cannot be alienated (Art. 54). The others can be alienated on the basis of an authorization by the Ministry and provided that certain conditions are met (Arts. 55 and 56). Cultural properties cannot be destroyed, damaged and used in a manner that is not compatible with their historic or artistic character or that can be detri- mental to their conservation.6 Private interests and rights, such as private owner- 2 Law 27 June 1939, No. 1497, on the protection of natural beauties, was adopted in the same period. 3 See, in particular, Art. 822, para. 2, according to which are part of the public demesne, if they belong to the State, the collections of museums, pinacothecas, archives, libraries. 4 “[La Repubblica] tutela il paesaggio e il patrimonio storico e artistico della Nazione”. Emphasis on landscape is a typical aspect of the Italian legislation on cultural heritage. It is based on the assumption that man has the capacity to recast nature in the form of cultural landscapes. 5 For the text and a commentary see M.A. Sandulli (ed.), Codice dei beni culturali e del paesaggio, Milano, Giuffrè, 2006. 6 “I beni culturali non possono essere distrutti, danneggiati o adibiti ad usi non compati- bili con il loro carattere storico o artistico oppure tali da recare pregiudizio alla loro con- servazione” (Art. 20, para. 1). Under Art. 20, para. 2, archives cannot be dismembered..