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Dipartimento Di Scienze Politiche Curriculum in Teoria Dello Stato Ed Dipartimento di Scienze Politiche Dottorato di Ricerca in Diritto pubblico, comparato ed internazionale Curriculum in Teoria dello Stato ed istituzioni politiche comparate Tesi di Dottorato LA DEMOCRAZIA DEL SORTEGGIO Tutor ___Dottorando Chiar.mo Prof. Fulco Lanchester Dott. Marco Mandato Ciclo XXX del Dottorato di Ricerca A.A. 2016/2017 Indice Oggetto, metodo e scopi della ricerca .......................................................................... 4 Premessa ....................................................................................................................... 6 CAPITOLO I DECISIONI, VOTAZIONI, SORTEGGIO 1. I criteri per assumere una decisione ................................................................. 9 2. Decisioni e votazioni ..................................................................................... 10 2.1. Collegi, votazioni elettive e deliberative ................................................ 13 2.2. Il principio di maggioranza nelle votazioni pubblicistiche ..................... 19 2.3. Il voto elettivo come diritto politico ........................................................ 23 3. L‘elezione come metodo, procedimento e controllo ...................................... 25 3.1. Elezioni e partecipazione democratica ................................................... 29 3.2. La partecipazione alla votazione elettiva attraverso i partiti politici ....... 33 4. Rappresentanza, rappresentanza giuridica, rappresentanza politica, rappresentanza sociologica-statistica .............................................................. 38 5. Il sorteggio ...................................................................................................... 42 5.1. I precedenti storici di impiego del sorteggio: Atene, Venezia, Firenze ... 45 CAPITOLO II IL SORTEGGIO COME REGOLA ED ECCEZIONE 1. Il sorteggio nelle fonti normative .................................................................... 51 2. Il sorteggio come regola ordinaria di decisione per tutelare l‘eguaglianza in ‗entrata'............................................................................................................ 51 3. Il sorteggio come regola decisoria residuale o eccezionale per tutelare l‘eguaglianza 'sopravvenuta' .......................................................................... 63 4. Il sorteggio come regola di formazione degli organi collegiali di valutazione e controllo .......................................................................................................... 67 4.1. Il sorteggio come regola di formazione degli organi collegiali con funzioni giurisdizionali ................................................................................................. 76 2 CAPITOLO III IL SORTEGGIO NEI REGOLAMENTI PARLAMENTARI 1. Il sorteggio nella prospettiva storica ............................................................... 84 2. Il sorteggio come metodo di organizzazione: gli Uffici ................................. 85 3. Il sorteggio come strumento di controllo: la ‗verificazione‘ dei poteri degli incompatibili alla Camera dei deputati ........................................................... 91 4. Il superamento del sorteggio: la natura gruppocentrica dei Regolamenti parlamentari e l‘istituzione delle Commissioni alla Camera dei deputati .... 102 5. Il ripristino del sorteggio nelle riforme del Regolamento della Camera dei deputati nel periodo fascista ......................................................................... 110 6. Il sorteggio nei regolamenti della Consulta nazionale e dell'Assemblea Costituente .................................................................................................... 115 7. L‘impiego residuale del sorteggio nei vigenti Regolamenti della Camera dei deputati e del Senato della Repubblica ......................................................... 116 CAPITOLO IV LA CRISI DI LEGITTIMITÀ DELLA DEMOCRAZIA RAPPRESENTATIVA E IL RINNOVATO INTERESSE PER IL SORTEGGIO IN CAMPO POLITICO 1. Il contesto attuale della crisi di legittimità democratica ............................... 118 2. I fattori esogeni della crisi: la globalizzazione ............................................ 120 3. I fattori endogeni: la recessione e lo smarrimento del principio elettivo ...... 126 3.1. Crisi del partito politico, personalizzazione e partiti antisistema .......... 133 4. Il ruolo dei nuovi media ................................................................................ 157 5. La crisi del Parlamento e il rafforzamento dell‘Esecutivo ........................... 165 6. Il deficit elettivo-rappresentativo nell‘Unione europea ................................ 169 7. Il sorteggio come reazione alla crisi di legittimità: il caso dei forum collegiali ‗rappresentativi‘ ............................................................................................ 176 7.1. Recenti esempi di assemblee sorteggiate: le esperienze in Canada, Olanda, Islanda e Irlanda ....................................................................... 178 7.2. Alcune (provocatorie) proposte di impiego del sorteggio ..................... 186 Considerazioni conclusive: il sorteggio come problema e opportunità .................... 192 Bibliografia ............................................................................................................... 200 3 Oggetto, metodo e scopi della ricerca Il presente lavoro concerne l‘impiego del sorteggio, inteso come metodo per adottare una decisione, nell‘ordinamento giuridico italiano, analizzato attraverso l‘esame delle fonti del diritto. Nei capitoli I, II, e III il metodo di lavoro è prevalentemente normativo in quanto si sviluppa a partire dallo studio delle fonti – costituzionali e ordinarie – per cogliere gli ambiti di applicazione del metodo del caso. L‘analisi delle fonti del diritto e l‘individuazione dei principi sottesi all‘impiego della sorte, ci ha consentito di trattare il tema de qua, nel capitolo IV, all‘interno di un ambito di teoria generale e in una dimensione comparata, con riflessioni e analisi che investono le più recenti discussioni e argomentazioni scientifiche che tangono la filosofia politica e volte a valorizzare l‘alea. Il capitolo I è volto ad inquadrare il tema del sorteggio esaminando la categoria generale delle decisioni e delle votazioni. A partire dalla Costituzione, dalle leggi e dai Regolamenti parlamentari, si è provveduto ad individuare le modalità attraverso cui avvengono le votazioni di tipo elettivo e deliberativo. Con riferimento alle prime, si è proceduto, successivamente, a coglierne gli aspetti essenziali nel momento in cui le stesse vengono in rilievo per la predisposizione degli individui a cariche autoritative. Questa parte si conclude con la concettualizzazione del sorteggio, mettendone in luce le caratteristiche che lo differenziano dalle decisioni elettive e deliberative con la descrizione dell‘impiego che ne era diffuso in alcune esperienze storiche. Il capitolo II si concentra esclusivamente sul sorteggio. Si è partito dai principi generali, così come messi in luce nell‘ultima parte del capitolo I, che caratterizzano la decisione ‗arbitraria‘, intesa come scelta rimessa alla casualità, alla ‗fortuna‘, alla ‗dea bendata‘, senza alcun contributo della volontà umana. Si è proceduto, successivamente, attraverso lo studio delle fonti normative, ad individuarne gli specifici e diversi ambiti di applicazione, all‘interno dei quali si è cercato di coglierne la differente ratio che ha spinto il legislatore a prevederne il ricorso sia in ambito pubblicistico sia in quello privatistico. Il capitolo III si propone l‘obiettivo di assumere il sorteggio nella prospettiva storica per comprendere eventi di indubbio rilievo per la storia costituzionale italiana, 4 profondamente connessi alla concezione della rappresentanza politica nelle diverse epoche storiche. A partire dall‘esame delle disposizioni contenute nei Regolamenti parlamentari del 1848 – soprattutto quello della Camera dei deputati – e sposando un approccio metodologico diacronico e sincronico, è stato ricostruito il ruolo che il caso ha avuto nella determinazione dell‘organizzazione interna dei lavori delle Assemblee e nella valutazione dei requisiti che dovevano sussistere in capo all‘eletto per mantenere l‘ufficio parlamentare alla Camera bassa, anche in questo caso con l‘intento di individuarne i significati e le finalità. Il capitolo IV ha natura prevalentemente teorica. Lo scopo è quello di inquadrare l‘attuale contesto storico esaminando lo stato in cui versa la democrazia rappresentativa. A partire dal deficit fiduciario che i cittadini nutrono nei confronti delle istituzioni rappresentative, si avrà modo di cogliere le motivazioni principali che hanno spinto giuristi, sociologi, economisti e filosofi del diritto a riproporre all‘attenzione pubblica il tema del sorteggio. Raggiunti i singoli scopi, oggetto delle singole parti, si sono sviluppate riflessioni conclusive atte a riassumere i risultati finali della ricerca e a tentare di cogliere gli aspetti problematici e di opportunità che possono ricondursi all‘impiego del sorteggio. 5 Premessa Nelle più svariate attività si deve decidere. La decisione può assumere diverse forme, ovvero, ci sono tanti criteri e metodi per decidere. Nell‘ambito del Diritto pubblico e del Diritto privato, la decisione può essere di tipo individuale o collettivo. Nel primo caso, viene espressa una volontà singola e propria di quella che è l‘unico soggetto decisore. Nel secondo, invece, la decisione
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