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ci&ograv basilar semplic garant condizion uniform riduc discrezional valut laddov risc contrast primar conten attien introdu personal impront managerialit&agrav suol intend scind prett com&rsqu fiduc elettor fortement influenz orient util efficient god apprezz autonom paradigmat specular oppost previst legg sfer funzional indipendent dirigent permett esclud infel riversin tecnico-gestional dann collettivit&agrav cart accenn innov introdott assunt obiett raggiung predetermin entro modalit&agrav variabil legam riconosc indifferent infrequent lament intent persecutor decision offrir piuttost altri posit suscit perplessit&agrav nord imporr import s&rsquo offron incontrovert general diffus decisional trascur enucl lim 5 gioc sottolin legalit&agrav diviet esit contravven corollar limit capacit&agrav negozial rappresent un&rsquo adesion poi copertur regolarit&agrav continuit&agrav imped portatric arrec pregiudiz rapidit&agrav merit approfond question indefett opportunit&agrav scontr miglior figur peculiarit&agrav soluzion possibil allor rispost espost esist dovr&agrav sostr ricav contingent per&ograv contemp concord vogl imprim tram prossim gianluc sgue esplic mil 1922 rimand lettur melis italian 1861-1993 bologn 1996 defin studios agencification&rdqu d.lvo 300 1999 infatt regolament affid intrapres moss 29 introduc clausol competenza&rdqu rientr espress riserv frutt attivit&agrav proced disposit originar 45 modif spettant raccolt deleg dovrann ammess scop predisporr filtr selezion evolu pubblic impieg europ problem present fas attual legisl europe <div><em><font size="2">1.1Le tre fasi storiche che segnano lo sviluppo della disciplina del pubblico impiego Europa. Il secolo XIX&deg; &ndash; 1.2 Segue. Il secolo XX&deg;: l&rsquo;accrescimento delle strutture pubbliche ed i problemi ad esse collegati &ndash; 1.3 Segue. La fase attuale - 2.1 I problemi che i singoli Stati europei si trovano a dover affrontare e risolvere: il numero dei dipendenti pubblici - 2.2 Segue. Il decentramento del pubblico impiego &ndash; 2.3.1 La gestione manageriale dell&rsquo;interesse pubblico &ndash; 2.3.2 Il sistema della remunerazione &ndash; 2.4 Il ruolo dei sindacati e la contrattazione collettiva &ndash; 3. Conclusioni</font></em></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">1.1 Le tre fasi storiche che segnano lo sviluppo della disciplina del pubblico impiego in Europa. Il secolo XIX&deg;</font></em></div> <div><font size="2">Le linee evolutive che hanno interessato la disciplina dei pubblici dipendenti nei principali stati europei possono essere suddivise, idealmente, in tre fasi successive. Si tratta, ovviamente, di una suddivisione di tipo teorico, che, nella realt&agrave;, ha risentito dei diversi connotati che caratterizzano i regimi giuridici e politici dei singoli Stati. Che ha, conseguentemente, rispettato tempi e modi diversi a seconda dello Stato di cui si tratta. Tuttavia, pur in presenza delle differenze proprie di ciascuna legislazione, &egrave; dato rinvenire alcuni tratti comuni nello sviluppo. Dallo studio di questi elementi &egrave; opportuno intraprendere questo breve percorso di ricerca, al fine di comprendere lo stato attuale della legislazione giuslavoristica del pubblico impiego e le problematiche che lo contraddistinguono.</font></div> <div><font size="2">Ebbene, la prima fase si contraddistingue per tre fattori principali. Anzitutto, un apparato pubblico di dimensioni ridotte, per lo pi&ugrave; rispondente alle esigenze dello Stato centrale, cui &egrave; demandato lo svolgimento dei compiti di spettanza pubblicistica. Inoltre, la predisposizione di una struttura organizzativa interna che riprende il modello gerarchico weberiano</font><a title="" name="_ftnref1" href="#_ftn1"><span><span><span><font size="2">[1]</font></span></span></span></a><font size="2">. Prevede pertanto una rigida separazione dei ruoli dei singoli funzionari, e li tutela con un ristretto numero di diritti, a fronte di un ampio ventaglio di doveri nei confronti dell&rsquo;Amministrazione di appartenenza. Circostanza questa che si giustifica in ragione del terzo elemento comune: l&rsquo;assenza di una disciplina legislativa dello <em>status</em> dell&rsquo;impiegato pubblico, determinata, essa stessa, dalla necessit&agrave; di perseguire l&rsquo;interesse comune, preponderante rispetto alle rivendicazioni dei singoli dipendenti.</font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">1.2 Segue. Il secolo XX&deg;: l&rsquo;accrescimento delle strutture pubbliche ed i problemi ad esse collegati</font></em></div> <div><font size="2">Il sistema ora delineato subisce un progressivo cambiamento sul finire del secolo XIX&deg;, seguendo le trasformazioni che la Pubblica Amministrazione subir&agrave; nel secolo successivo, il ventesimo</font><a title="" name="_ftnref2" href="#_ftn2"><span><span><span><font size="2">[2]</font></span></span></span></a><font size="2">. Questa seconda fase &egrave; caratterizzata soprattutto per il notevole ampliamento del numero dei funzionari, corrispondente, a sua volta, all&rsquo;aumento delle pubbliche funzioni. Si tratta di una conseguenza logica: dovendo preoccuparsi di soddisfare un numero crescente di esigenze, legate principalmente all&rsquo;erogazione dei servizi pubblici, le Amministrazioni statali (e, in misura minore, quelle locali) debbono dotarsi di un organico adeguato.</font></div> <div><font size="2">Questa circostanza produce due ulteriori conseguenze, tra loro strettamente collegate. La prima, riguarda l&rsquo;inevitabile diminuzione nelle retribuzioni offerte ai lavoratori pubblici. Evidentemente, aumentando gli organici, si rende necessario ridurre l&rsquo;impatto economico sui bilanci pubblici, al fine di evitare uno squilibrio eccessivo nelle singole voci di spesa. </font></div> <div><font size="2">La seconda conseguenza &egrave; diretta derivazione di questa: aumentando il numero dei dipendenti &ndash; e dunque la consapevolezza del proprio ruolo &ndash;&nbsp;diminuendo, contestualmente, le retribuzioni, si determina la nascita delle prime forme di rivendicazione sindacale. In altre parole, se nella fase precedente le ipotesi di conflitto di interessi erano pressoch&eacute; sconosciute, in quella attuale la loro sopravvenienza crea l&rsquo;esigenza di un organismo collegiale forte, appunto: il sindacato, in grado di rivendicare le richieste dei lavoratori. Ed in effetti si avranno, in alcune ipotesi, significativi risultati: ad esempio, lo sviluppo di alcune forme di co-gestione con la Pubblica Amministrazione, destinate a stabilire il numero di funzionari da inserire in ogni settore.</font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">1.3 Segue. La fase attuale</font></em></div> <div><font size="2">L&rsquo;ultima fase, tutt&rsquo;ora in corso, inizia a partire dagli anni ottanta del XX&deg; secolo e si caratterizza per un fattore preponderante: sulla scorta delle ideologie neo-liberiste si opera un progressivo avvicinamento del settore pubblico a quello privato. Se cio&egrave; nelle due fasi precedenti si erano mantenute rigide distinzioni tra l&rsquo;impiego pubblico e quello privato, ad esempio in ordine alla tipologia contrattuale, ma non solo, questa fase si caratterizza per il ricorso, da parte delle Amministrazioni pubbliche, agli strumenti propri del diritto privato. </font></div> <div><font size="2">Le ragioni della scelta sono, ovviamente, molteplici. Basti qui dire che, tra queste, vi &egrave; soprattutto la necessit&agrave; di adottare, nel perseguimento delle politiche pubbliche, strumenti operativi flessibili, votati - si pu&ograve; dire - al risultato. Le strutture pubbliche debbono confrontarsi con esigenze di natura finanziaria precedentemente sconosciute. La conseguenza &egrave; quella appena descritta: la ricerca di metodologie operative flessibili, che assicurino un margine di profitto maggiore e vincolino le responsabilit&agrave; dirigenziali ad un risultato concreto e quantificabile.</font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">2.1 I problemi che i singoli Stati europei si trovano a dover affrontare e risolvere: il numero dei dipendenti pubblici </font></em></div> <div><font size="2">Le nuove esigenze cui si &egrave; appena fatto cenno hanno comportato l&rsquo;insorgenza di una serie di problematiche, la cui risoluzione &egrave; presto divenuta una priorit&agrave; nell&rsquo;agenda programmatica dei singoli governi. Ciascuno Stato, con metodologie diverse e diversamente efficaci, &egrave; intervenuto ripetutamente sulla disciplina del pubblico impiego. In particolare, si sono operati significativi interventi su quattro problemi: il primo dei quali &egrave; costituito dal numero dei dipendenti pubblici.</font></div> <div><font size="2">L&rsquo;esigenza comune &egrave; stata quella di ridurne il numero, divenuto eccessivo rispetto alle esigenze concrete. Tuttavia, non sempre gli strumenti adoperati si sono rivelati efficaci. In alcuni Stati (tra questi, l&rsquo;Italia) si &egrave; deciso di favorire la &ldquo;privatizzazione&rdquo; di settori pubblici. Ovvero, la trasformazione di strutture formalmente e sostanzialmente pubblicistiche in societ&agrave; per azioni (aspetto formale), pur sotto il controllo pi&ugrave; o meno incisivo dei pubblici poteri (aspetto sostanziale). </font></div> <div><font size="2">Quali conseguenze ha indotto questo processo? A fronte di sicuri vantaggi si &egrave; creata, in primo luogo, l&rsquo;esigenza di tutelare lo <em>status </em>di funzionario pubblico (e le relative prerogative) in capo ai dipendenti che gi&agrave; lavoravano nelle Amministrazioni privatizzate. Circostanza questa che ha creato il fenomeno, singolare, seppur transitorio, di un regime giuridico differenziato tra &ldquo;vecchi&rdquo; dipendenti, vincolati dalla disciplina pubblicistica, ed i &ldquo;nuovi&rdquo; dipendenti, assoggettati invece al vincolo contrattuale. In secondo luogo, si &egrave; perso parte del sistema di valori che si accompagnavano tradizionalmente al settore pubblico, sostituiti da una nuova concezione dell&rsquo;impiego, naturalmente legata alla categoria dei lavoratori privati.</font></div> <div><font size="2">Altrove, si &egrave; preferito fare ricorso ad uno strumento decisamente pi&ugrave; incisivo: la politica dei licenziamenti. Facile immaginare tuttavia come la contropartita in termini politici sia stata notevole, soprattutto in ragione delle forte opposizione dei sindacati.</font></div> <div><font size="2">Infine, &egrave; stato comune il ricorso allo strumento del blocco delle assunzioni. Evitando, in tal modo, che gli organici si accrescessero, e con essi la spesa. Anche questa soluzione ha presentato dei risvolti negativi: non solo il progressivo innalzamento dell&rsquo;et&agrave; media dei dipendenti pubblici, che ha finito per ostacolare ai pi&ugrave; giovani l&rsquo;accesso alla carriera pubblica. Ma, anche, la necessit&agrave; per le Amministrazioni di ricorrere con frequenza crescente al lavoro temporaneo, aumentando il senso di instabilit&agrave; e precariet&agrave;, avvertito, ancora una volta, soprattutto dai pi&ugrave; giovani.</font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">2.2 Segue. Il decentramento del pubblico impiego</font></em></div> <div><font size="2">Un altro problema della massima rilevanza ha interessato il fenomeno del cd. &ldquo;decentramento del pubblico impiego&rdquo;. In sostanza, si tratta del fenomeno per il quale il rapporto di diritto pubblico non viene ad instaurarsi con l&rsquo;intera Amministrazione, ma esclusivamente con quella di riferimento. L&rsquo;esempio pi&ugrave; calzante &egrave; costituito, a tale proposito, dall&rsquo;Inghilterra, che ha dato luogo ad una massiccia politica di decentramento, attraverso il potenziamento e la distribuzione capillare di agenzie lungo il territorio</font><a title="" name="_ftnref3" href="#_ftn3"><span><span><span><font size="2">[3]</font></span></span></span></a><font size="2">. In alcuni casi, come quello spagnolo, solo una minima parte (nel caso in esame appena il 9%) &egrave; rimasta vincolata allo Stato centrale.</font></div> <div><font size="2">Il rovescio della medaglia dell&rsquo;incentivizzazione di politiche di diversificazione &egrave; costituito, paradossalmente, dall&rsquo;esigenza di individuare e confermare un nucleo di prerogative comuni, non derogabili dalle singole ramificazioni. Ci&ograve;, non al fine di negare i principi basilari del decentramento operativo, tutt&rsquo;altro. Pi&ugrave; semplicemente, al fine di garantire condizioni uniformi, nel minimo e nel massimo, riducendo il margine discrezionale delle valutazioni delle singole Amministrazioni soprattutto laddove rischi di contrastare con le primarie esigenze di contenimento della spesa.</font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">2.3.1 La gestione manageriale dell&rsquo;interesse pubblico</font></em></div> <div><font size="2">Il terzo aspetto attiene all&rsquo;introduzione di un nuovo tipo di gestione del personale, improntato ai principi della managerialit&agrave;. Ove, con questo termine, suole intendersi la necessit&agrave; di scindere le esigenze di tipo politico da quelle di tipo prettamente manageriale. Le prime, com&rsquo;&egrave; logico ed opportuno, legate al perseguimento di risultati che assicurino la conferma della fiducia dell&rsquo;elettorato. Dunque, fortemente influenzate dalle ideologie di base e pertanto necessariamente soggettive. Le seconde, invece, orientate a perseguire un risultato utile e quantificabile in termini di efficienza ed efficacia, nel godimento di un apprezzabile margine di autonomia.</font></div> <div><font size="2">Paradigmatici, in quanto specularmente opposti, sono, a tal fine, l&rsquo;esempio spagnolo e quello italiano. Nel primo caso, a differenza del secondo, non &egrave; prevista dalla legge una sfera funzionale indipendente in capo alla dirigenza. Circostanza questa che non permette di escludere il rischio di scelte politiche infelici che si riversino sugli aspetti tecnico-gestionali dell&rsquo;interesse pubblico, creando un grave danno alla collettivit&agrave;. Quello italiano</font><a title="" name="_ftnref4" href="#_ftn4"><span><span><span><font size="2">[4]</font></span></span></span></a><font size="2"> invece, costituisce, sulla carta, l&rsquo;esempio di una scelta opportuna, volta ad evitare i rischi appena accennati.</font></div> <div><font size="2">&nbsp;</font></div> <div><font size="2">&nbsp;</font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">2.3.2 Il sistema della remunerazione</font></em></div> <div><font size="2">Una conseguenza diretta dell&rsquo;introduzione di logiche manageriali nel pubblico impiego &egrave; costituita dalle innovazioni introdotte nel sistema della remunerazione. Partendo dall&rsquo;assunto che l&rsquo;obiettivo di ciascuna Amministrazione &egrave; il raggiungimento di un risultato predeterminato, entro tempi e secondo modalit&agrave; variabili, la conseguenza che ne discende direttamente &egrave; data dal legame tra il raggiungimento di quelli ed il riconoscimento di una maggiore retribuzione.</font></div> <div><font size="2">Il sistema ora descritto, seppur fortemente incentivante, ha creato problemi non indifferenti per ci&ograve; che riguarda i rapporti tra i singoli dipendenti. Non sono stati infrequenti i casi si &egrave; lamentato, da parte di questi, un intento persecutorio nella decisione di offrire ad alcuni, piuttosto che ad altri, gli incentivi economici derivanti da una valutazione positiva. Ragioni, queste, che suscitano perplessit&agrave; in particolare riguardo ai sistemi legislativi del nord Europa, dove &egrave; la legge stessa ad imporre la valutazione dei dipendenti. </font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">2.4 Il ruolo dei sindacati e la contrattazione collettiva</font></em></div> <div><font size="2">Ultimo, ma non meno importante, &egrave; il ruolo svolto dai sindacati pubblici e le problematiche che ad esso si accompagnano. Le trasformazioni di cui s&rsquo;&egrave; dato conto offrono un dato incontrovertibile: il generale e diffuso potenziamento dei sindacati del settore pubblico. </font></div> <div><font size="2">Tuttavia, all&rsquo;accrescersi del peso decisionale loro riconosciuto si &egrave; accompagnato il rischio, non trascurabile, di un aumento eccessivo della spesa pubblica. Da qui l&rsquo;esigenza di enucleare dei limiti, in particolare alla contrattazione collettiva</font><a title="" name="_ftnref5" href="#_ftn5"><span><span><span><font size="2">[5]</font></span></span></span></a><font size="2">, settore nel quale ciascun sindacato gioca un ruolo preponderante. Dunque, sottolineando in particolare il necessario rispetto di tre principi: quello di legalit&agrave;, da intendersi come divieto di contrattazione collettiva i cui esiti contravvenissero alle disposizioni ed ai principi di legge. Cui si aggiunge l&rsquo;ulteriore corollario del limitato riconoscimento della capacit&agrave; negoziale alle sole rappresentanze sindacali forti di un&rsquo;adesione numericamente adeguata. Poi, con il rispetto del principio della copertura del bilancio. Infine, nel rispetto del principio della regolarit&agrave; e continuit&agrave; dell&rsquo;erogazione dei servizi pubblici. Impedendo, di fatto, alle rivendicazioni (ed agli interessi di cui questa &egrave; portatrice) di arrecare pregiudizio alla collettivit&agrave;.</font></div> <div><font size="2">&nbsp;</font></div> <div><font size="2">&nbsp;</font></div> <div><font size="2">&nbsp;</font></div> <div><em><font size="2">3. Conclusioni</font></em></div> <div><font size="2">Con tutta evidenza, pur nella rapidit&agrave; cui si &egrave; fatto cenno ai diversi problemi che meriterebbero ulteriori approfondimenti, la disciplina del pubblico impiego costituisce una questione centrale per ciascuno Stato. L&rsquo;indefettibile opportunit&agrave; di tutelare l&rsquo;interesse collettivo si scontra con la necessit&agrave; di contenere i costi e migliorare i risultati. Al centro, &egrave; la figura del pubblico dipendente ed il regime giuridico del rapporto di lavoro con l&rsquo;Amministrazione. </font></div> <div><font size="2">A ci&ograve; si aggiungano le peculiarit&agrave; proprie di ciascun regime politico, cui si &egrave; gi&agrave; fatto cenno, che favoriscono la diversificazione nella scelta delle soluzioni possibili. Appare evidente allora che una singola risposta alle problematiche esposte non esiste. Ciascun governo dovr&agrave; misurarsi con il sostrato di appartenenza e, da quello, ricavare le soluzioni contingenti ed opportune. Al tempo stesso per&ograve;, si rende opportuna l&rsquo;unificazione delle linee programmatiche generali. Dunque, nel rispetto delle peculiarit&agrave;, ma al contempo nella valutazione concordata delle linee evolutive che si vogliono imprimere al pubblico impiego, e per il tramite di questo all&rsquo;Amministrazione tutta, &egrave; da rinvenirsi l&rsquo;obiettivo degli Stati europei nei prossimi anni.</font></div> <div><font size="2">&nbsp;</font></div> <div align="right"><strong><a href="mailto:gisgueo@yahoo.it"><font size="2">Gianluca Sgueo</font></a></strong></div> <div><br clear="all" /><font size="2"><hr align="left" width="33%" size="1" /></font> <div id="ftn1"> <div><a title="" name="_ftn1" href="#_ftnref1"><span><span><span><font size="2">[1]</font></span></span></span></a><font size="2">L&rsquo;esplicazione del modello weberiano &egrave; rinvenibile in <span>Weber, M., <em>Economia e societ&agrave;, </em>Milano, 1922</span></font></div> </div> <div id="ftn2"> <div><a title="" name="_ftn2" href="#_ftnref2"><span><span><span><font size="2">[2]</font></span></span></span></a><font size="2">Per gli ulteriori ed opportuni approfondimenti si rimanda alla lettura di <span>Melis, G., <em>Storia dell&rsquo;amministrazione italiana (1861-1993), </em>Bologna, 1996</span></font></div> </div> <div id="ftn3"> <div><a title="" name="_ftn3" href="#_ftnref3"><span><span><span><font size="2">[3]</font></span></span></span></a><font size="2">Non a caso il fenomeno in esame &egrave; definito dagli studiosi come &ldquo;<em>agencification</em>&rdquo;. Anche l&rsquo;Italia ha potenziato lo strumento delle agenzie, a partire dal D.lvo n. 300 del 1999 ha infatti regolamentato la figura delle agenzie, affidando loro compiti significativi e garantendo contestualmente apprezzabili margini discrezionali nelle politiche decisionali da queste intraprese.</font></div> </div> <div id="ftn4"> <div><a title="" name="_ftn4" href="#_ftnref4"><span><span><span><font size="2">[4]</font></span></span></span></a><font size="2">La separazione della sfera dirigenziale da quella politica prende le mosse dall&rsquo;art. 3 del D.lvo n. 29 del 1993, che introduceva una &ldquo;clausola di competenza&rdquo; a favore della dirigenza, per il compimento di tutti gli atti che non rientrassero tra quelli espressamente riservati agli organi politici.</font></div> </div> <div id="ftn5"> <div><a title="" name="_ftn5" href="#_ftnref5"><span><span><span><font size="2">[5]</font></span></span></span></a><font size="2">Per quanto riguarda il sistema italiano il ruolo dei sindacati nella contrattazione collettiva &egrave; il frutto dell&rsquo;attivit&agrave; dell&rsquo;ARAN, l&rsquo;agenzia che rappresenta la Pubblica Amministrazione nel procedimento di contrattazione collettiva. Infatti, in ragione del contenuto dispositivo originariamente previsto dall&rsquo;art. 45 del D.lvo n. 29 del 1993, e successive modifiche, tra le funzioni spettanti all&rsquo;agenzia rientra la raccolta dei voti e delle deleghe dei sindacati che dovranno essere ammessi alla successiva fase della contrattazione. Circostanza questa che perseguirebbe lo scopo di predisporre un filtro al fine di selezionare le sole rappresentanze sindacali maggiormente rappresentative.</font></div> </div> </div> 0 L’evoluzione del pubblico impiego in Europa ed i problemi che si presentano nella fase attuale ai legislatori europei. 2010-01-13T13:37:14Z