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La Lex Publilia Del 339 A.C. E L'auctoritac Preventiva

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La Lex Publilia Del 339 A.C. E L'auctoritac Preventiva Ann. Univ. Ferrara - Sc. Giur. Nuova Serie - Vol. I1 (1988) PIERPAOLO ZAMORANI La lex Publilia del 339 a.C. e l'auctoritac preventiva 1. Nelle C Lezioni ,» che ho recentemente dato alle stampe (l) ho espresso l'opinione che, contrariamente a quanto comunemente si afferma, la cosiddetta lex Publilia de patrum auctoritate (3 del 339 a.C. (in virtù della quale i patres avrebbero dovuto prestare la pro- pria auctoritas in olrdine alle delibere del comizio centuriato prima che la votazione avesse inizio anziché dopo l'approvazione del popo- lo, come era fino ad allora avvenuto) costituisse un obiettivo raffor- zamento dei poteri del slenato (3). La natura del lavoro in cui questa opinione veniva prospettata, nonché la sua specifica (se non esclusiva) destinazione ai miei studenti del corso di Diritto romano, sconsigliavano una trattazione maggior- mente approfondita della questione. Non mi sembra perciò inutile un suo riesame in questa sede: l'occasione permetterà qualche ulteriore considerazione, forse non priva di interess'e. 2. Vediamo a,nzitutto la testimonia~nza liviana da cui si è soliti prendere le mosse: Liv. 8.12: (14) Dictatura (scil. Q. Publilii Philonis) popularis et orationibus in patres criminosis fuit, et quod tres leges secundissimas plebi, adversas nobilitati tulit: unam, ut plebi scita omnes Quirites tenerent; (15) alte~arn,ut legum quae cornitiis centuriatis ferrentur ant'e initum suffragium patres auctores fierent; (16) tertiam, ut alter utique ex plebe - cum eo ventum sit ut utrumque plebeium fileri liceret - censor crearetur. (17) Plus eo anno domi acceptum cladis ab con- sulibus ac dictatore quam ex victoria eorum bellicisque rebus faris auctum imperium patres credebant. A tutta prima, la communis opinio sembra poggiare su basi as- sai solide. Le tre leggi publillie (e quindi anche quella de patrum (l) Plebe Genti Esercito (Una ipotesi sulla storia di Roma. 509-339 a.C.), Milano 1987. (2) SU cui ROTQNDI,Leges publicae populi Romani, Milano 1912, p. 227. (3) Plebe Genti Esercito etc., cit., p. 130 S. auctoritate che ora ci interessa) sono dette dallo storico secundissi- mae plebi, adversae nobilitati; i patrizi (4), poi, avrebbero ritenuto esiziale la dittatura popularis di Quinto Publilio Filone, al punto da stimare maggiore il danno prodotto sul fronte interno dalla sua le- gislazione al vantaggio che le vittorie militari dei consoli (5) avevano arrecato sul piano internazionale. Che quindi il dittatore del 339 a.C. abbia inferto un grave colpo al potere ed al prestigio delle istituzioni patrizie in genere (ed a quelli del consesso senatori0 in particolare) sembrerebbe scontato. Per la precisione - almeno così si sostiene - P'innovazione in- trodotta dalla len Publilia de patrum auctouitate avrebbe privato il senato (') del potere di cassare quelle delibere del comizio centuriato che gli risultassero sgradite. Sle, fino al 339 a.C., l'auctoritas patrum era stata l'atto finale del procedimento legislativo (sicché i senatori potevano, per così dire, « aspettare al varco D la de1ib)era comiziale e decidere allora se farla entrare in vigore ovvero - negandole l'aucto- ritas - farla venire meno) dopo la riforma, che anteponeva la presta- zione dell'auctoritas alla votazione, il senato sembrerebbe essere stato espropriato di ogni effettivo controllo sulla legislazione: una volta che, munita dell'auctoritas, la proposta fosse uscita dalla curia, con- tenuti e sorte ne sarebbero stati determinati dalla volontà del comi- zio e )del suo presidente, mentre il senato le sarebbe stato ormai irri- mediabilmente estraneo. Questa con~lusioneparrebbe sorretta in modo decisivo da Liv. 1.17.9: Decreverunt enim (sci!. patves) ut, cum populus regem iussisset, id sic ratum esset, si patres auctores fie- (4) Poiché nell'anno 339 a.C. il senato doveva essere ancora a forte mag- gioranza patrizia, considero, qui ed altrove, fungibili i termini C antisenato- rio D e << antipatrizio », C senato D e patriziato D, etc. (5) I1 paragone fra il danno prodotto dalla legislazione di Publilio Filone e le imprese militari dei consoli di quello stesso anno è motivato dalla duplice circostanza che, anteriormente alla sua nomina a dittatore, Publilio era appun- to stato Console, e che il suo collega patrizio Tiberio Emilio Mamerco (oltre ad averlo nominato dittatore) è detto anche averne condiviso la politica antisena. toria (Liv. 8.12.11). (6) In questa sede ed ai limitati fini di questo lavoro penso di potere pre- scindere dalla questione - ancora discussa e di ardua soluzione - se a pre- stare l'auctoritas fossero in ogni epoca i soli senatori patrizi (in tal senso già MOMMSEN,Droit pubiic romain, VII, Paris 1891, p. 237 S. e, più recentemente, BLEICKEN, Lex Publica. Gesetz und Recht in der romischera RepubZik, Berlin- New Uork 1975, p. 296), ovvero fossero fina al 367 a.C. i soli senatori patrizi e dopo tale data tutti i membri del senato, indipendentemente dal ceto di appartenenza (così, da ultimo, MANNINO, L'auctoritas patrum, Milano 1979, p. 59 ss. e 129 ss.). Le mie preferenze (cfr. Plebe Genti Esercito etc., cit., p. 132) vanno alla prima ipotesi. La Zex PubZiZia del 339 a.C. e Z'auctoritas preventiva 5 rent. Hodie quoque in legibus magistratibusque rogandis usurpatur idem ius, vi adempta; priusquam populus suffra- gium ineat, in incertum cornitiorum eventum patres auctores fiunt (7). L'auctovitas prestata priusguam populus suffvagium ineat (espres- sione chiaramente equivalente ad ante initum suffragium di Liv. 8. 12.15) avrebbe dunque perduto, stando al tenore del passo liviano, ogni vis. Così almeno interpreta la dottrina (8). (7) Sulla situazione che la prima parte del testo contempla cfr. infra p. 16. (8) HUMBERT, S.V. Auctoritas patrum, in D§, I, Paris 1877, p. 546 (pure for- malité) e p. 547 (simple formalité); BERGER, SS.VV. Auctoritas patrum e Lex Pu- blilia Philonis, in Encyclopedic Dictionary of Rorvran Law, Philadelphia 1953, p. 369 (a mere formality) e p. 558 (a mere formality); MOMMSEN, Droit public romain, VII, cit., p. 243 (la ratification anticipée n'a absohment aucune im- portance pratique); SCHERILLO-DELL'ORO,Storia del diritto romano, 4a ed., Mi- lano-Varese 1950, p. 92 (mera formalità priva di qualsiasi contenuto pratico); ARANGIO-RUIZ,Storia del diritto romano, 7a ed., Napoli 1957, p. 41 (parere pre- ventivo [non vincolante] sulle proposte del magistrato); GROSSO,Lezioni di sto- ria del diritto romano, 5a ed., Torino 1965, p. 202 (parere preventivo non vinco- lante, che si ridusse a mera formalità); DE FRANCISCI,Sintesi storica del diritto romano, Roma 1968, p. 126 (pura formalità); KUNREL,Lezioni di storia giuridica romana, Napoli 1973, p. 30 (importanza molto diminuita); KASER,Storia del diritto romano, Milano 1977, p. 46 (formalità); TONDO, Profilo di storia costitu- zionale romana, I, Milano 1981, p. 237 (autorizzazione in bianco); BURDESE, Ma- nuale di diritto pubblico romano, 3'* ed., Torino 1987, p. 77 (parere preventivo non vincolante per le rogazioni legislative); BISCARDI, Auctoritas patrum, in BIDR 48 (1941), p. 436 (parere preventivo non vincolante, opinione ribadita nella postilla alla ripubblicazione del citato lavoro [Napoli 1987, pag. 232 S.] e temperata dall'affermazione che l'auctoritas conservava tuttora una grande importanza sotto il profilo politico); BEEICKEN, Lex Publica, etc., cit. p. 296 (Als eine den Volksbeschlussen vorangehende Willensausserung der patrizischen Senatoren, blieb sie dann bis an das Ende der Republik erhalten, sbwohl sie kaum noch etwas bedeutete ...); MANNINO,L'auctoritas patrum, cit., p. 83 (parere non vincolante sul contenuto della rogatio) e p. 121 (parere non vincolante sull'opportunità o meno di dare inizio alle operazioni di voto). Iss- lata (e quasi totalmente inascoltata: vi aderisce ora ~MIRANTE,Sulh provo- catio ad populum fino al 300, in Iura (34), 1983, p. 24; ID., Plebiscito e leg- ge. Primi appunti per una storia, in Sodalitas. Scritti in onore di Antonio Gua- rino, vol. IV, 1984, p. 235 e nt. 21) in questo uniforme panorama scientifico, è l'opinione di WILLEMS,Le sénat de la république romaine, Sa composition et ses attributions, 11, EsuvaHn 1885, p. 83 S. Poiché a questa opinione io aderisco pienamente, varrà la pena di riportarla per esteso: C Quelle fut la portée de la réforme introduite par les lois Publilienne et Ménienne? Dimintia-t-elle, comme on le dit communément, l'importante de la patrum auctoritas? Nous ne le pen- sons pas. Si l'on se place à un point de vue purement théorique, la réforme peut &re appelée démocratique. Antérieurement, les décisions populaires, pour $tre exécutoires, devaient etre validées par le Sénat. Désorrnais l'intervention du Sénat précède la décision du peuple. La dernière instance passe au peuple. Le Sénat cesse d'Etre le tuteur du peuple; dans le sens juridique du mot, il n'est plus auctor. Le peuple devient vraiment souverain. C'est de cette théorie Possiamo aderire a questa interpretazione? Io non credo. A mio avviso, allorché gli studiosi sono pervenuti alla formula- zione della conclusione sopra riportata, sono stati vittime di un non lieve abbaglio. L'auc toritas preventiva (ed è quanto mi riprometto di porre in luce) non esautora il senato ma lo dota anzi di uno stru- mento di controllo politico di strao'rdinaria effifcacia;non indebolisce la posizione dei senatori ma, al contrario, la rafforza. Le pagine che seguono intendono anzitutto giustificare queste affermazioni e, suc- cessivamente, chiarire la portata ed il significato di Liv. 1.17.9. 3. Vi sono, io credo, tre argomenti (di diveilso peso e natura) che inducono a guardare con una certa diffidenza al racconto liviano re- lativo all'anno 339 a.C. e, in particolare, al conflitto fra Publilio ed il senato. La legislazione secundissirna plebi, adversa ~zobilitatidi cui 6 au- tore Quinto Publilio Filone dovrebbe es~slere,ad un tempo, causa ed effetto de1l1inimicizia esistente fra il console (poi dittatore) di quel- l'anno ed il patriziato in genere ed il senato in particolare.
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