DDL work pieces. Concerns about protecting workers.
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"Honourable Members,
I was referred to the promulgation of the law on the" Powers to the Government in respect of strenuous work, reorganization of entities, leave, expectations and permits, social security measures, services for the use of incentives to employment, apprenticeship, employment for women, and measures against undeclared work and regulations on public works and labor disputes. "
The measure, which began as a write-off of a design of the law related to the Finance Act 2009 (Room n.1441-quater), had a troubled passage through Parliament during which the text, which originally consisted of 9 items and 39 sub-paragraphs and acted on different sectors, it has become a very complex law, consisting of 140 paragraphs and 50 articles referred to the most diverse materials.
This configuration markedly heterogeneous regulatory action - that is, moreover, by the same title above - is made even more evident from even a brief and partial list of the main subjects discipline: a review of legislation tema di lavori usuranti, riorganizzazione degli enti vigilati dal Ministero del lavoro e delle politiche sociali e dal Ministero della salute, regolamentazione della Commissione per la vigilanza sul doping e la tutela della salute nelle attività sportive, misure contro il lavoro sommerso, disposizioni riguardanti i medici e professionisti sanitari extracomunitari, permessi per l'assistenza ai portatori di handicap, ispezioni nei luoghi di lavoro, indicatori di situazione economica equivalente, indennizzi per aziende in crisi, numerosi aspetti della disciplina del pubblico impiego (con conferimento di varie deleghe o il rinvio a successive disposizioni legislative), nonché una ampia riforma del codice di procedura civile per quanto attiene alle disposizioni in materia di conciliazione e arbitrato nelle controversie individuali di lavoro.
Ho già avuto altre volte occasione di sottolineare gli effetti negativi di questo modo di legiferare sulla conoscibilità e comprensibilità delle disposizioni, sulla organicità del sistema normativo e quindi sulla certezza del diritto; nonché sullo stesso svolgimento del procedimento legislativo, per la impossibilità di coinvolgere a pieno titolo nella fase istruttoria tutte le Commissioni parlamentari competenti per ciascuna delle materie interessate. Nel caso specifico l'esame referente si è concentrato alla Camera nella Commissione lavoro e al Senato nelle Constitutional Affairs Committee and work, while, for example, the Judiciary Committee of both Houses of Parliament and also the Constitutional Affairs Committee of the House have intervened only in an advisory capacity and could not attend the examination at the meeting in the manner permitted by the relevant Regulations . These problems are even more serious when it made, as in this case, so novelistic codes and laws on organic.
those circumstances - with the hope of careful reflection on how to proceed in the future the definition of legislative measures, particularly relating to matters of particular importance and complexity - are induced to apply to the Chambers a new debate on this law on the particular problems involved in some of the provisions governing issues of undoubted sensitivity to the social level, the protection of their right to health and other workers' rights: issues on which - the exercise of my office - I felt obliged to draw attention repeatedly institutions, social partners and the public.
I mean here to refer specifically to Article 31 which amends the provisions of the Code of Civil Procedure relating to arbitration and conciliation in individual disputes di lavoro e all'articolo 20 relativo alla responsabilità per le infezioni da amianto subite dal personale che presta la sua opera sul naviglio di Stato. Su di essi sottopongo alla vostra attenzione le considerazioni ed osservazioni che seguono.
1. L'articolo 31, nei primi nove commi, che ne costituiscono la parte più significativa, modifica in modo rilevante la sezione prima del capo primo del titolo quarto del libro secondo del codice di procedura civile, nella parte in cui reca le disposizioni sul tentativo di conciliazione e sull'arbitrato nelle controversie individuali di lavoro (artt. da 409 a 412-quater del codice di procedura civile), introducendo varie modalità di composizione delle controversie di lavoro alternative al ricorso al giudice. Apporta inoltre, negli ultimi sette commi, una serie di modifiche al decreto legislativo 10 settembre 2003, n. 276, dirette a rafforzare le competenze delle commissioni di certificazione dei contratti di lavoro.
La introduzione nell'ordinamento di strumenti idonei a prevenire l'insorgere di controversie ed a semplificarne ed accelerarne le modalità di definizione può risultare certamente apprezzabile e merita di essere valutata con spirito aperto: ma occorre verificare attentamente che le relative disposizioni siano pienamente coerenti con i princìpi della volontarietà arbitration and the need to ensure adequate protection of the weaker party.
Both these principles have been consistently successful in a number of rulings by the Constitutional Court. The Court in fact has first declared the unconstitutionality of the rules providing for the mandatory use of arbitration, since only the concerted will of the parties may waive the fundamental principle of statehood and exclusive jurisdiction (Article 102, first paragraph of the Constitution ) and the right of all citizens to take legal action to protect their legitimate rights and interests (Articles 24 and 25 of the Constitution). Furthermore, with reference to the relationship in which there is a clear, marked imbalance of bargaining power between the parties, the Court has recognized the need to ensure the "effective" voluntariness of the negotiations and any disclaimers, again with special regard to labor relations and the protection of workers' rights the courts. This line of case law, taken up and developed by the Supreme Court, led in effect to the requirement of employment claims in the reports without ensuring the stability of the termination of the relationship. This is in analogy with art. 2113 of the Civil Code regarding the commencement of the period for appeal of denial and transactions have been subject to the rights of the provider work resulting from mandatory provisions of law and collective agreements (see the judgments of the Constitutional Court No. 63 of 1966, No. 143, 1969, No. 174, 1972, n. 127, 1977, No. 488 of 1991, Nos . 49, 206 and 232, 1994, nos. 54 and 152 of 1996, No. 381, 1997, No. 325, 1998 and No 221 of 2005).
Based on this information, can not but arouse serious doubts the provision of paragraph 9 of Article. 31, that the decision to donate to arbitration the determination of any disputes can be taken not only in a constant ratio when the dispute arises, but also when the contract was signed, through the inclusion of specific arbitration clause: the phase of establishment of the relationship is in fact the time at which maximum is the condition of weakness of the party which offers the performance of work.
Besides the need to ensure that the parties' intention to donate the dispute to arbitration is "effective" from the very wording of paragraph 9, which entrusts the investigation to the relevant certification in art. 76 of Legislative Decree No 276, 2003. Warranty which does not appear sufficient, because these bodies - even apart from the uncertainties on the scope of its powers, serving more general difficulty of "acclimatization" of the institution - could only take note of the intention declared by the employee, once it has been confirmed in a phase that is still constitutive of the relationship and in which therefore remains an obvious position of weakness. Other reasons
concerns arising from the fact that under the new wording of art. 412 of the Code of Civil Procedure contained in paragraph 5 of art. 31 (provision expressly referred to in paragraph 9 of that article) the arbitration clause may also cover "required to decide on an equitable basis, in accordance with the general principles of."
As you know, fairness in resolving the dispute can be resolved, notwithstanding the provisions of the law: it affects so on same substantive rules of employment, making it extremely flexible even at the level of the individual relationship. Nor can provide sufficient assurance of compliance with the generic reference of the general principles of which does not appear as such likely to cover all cases of inalienable rights beyond those guaranteed by the Constitution, and still look so delicate can not be entrusted contrary to the doctrinal and case law, subject to food disputes that the law is being proposed to avoid. Concerns rise further extension of the possibility of using this type of arbitration in public employment: in this case is particularly a clear need to clarify whether and under what rules may be waived without prejudicing the principles of sound, transparency and impartiality of the administration according to art. 97 of the Constitution.
Moreover arbitration of fairness can play a valuable and useful only as long as you move through a significant but limited in space and shared some limits. In essence the objective to be pursued is that of a substantial revision of the substantive law of the employment relationship, which has so far mainly based on binding rules or available only at a bargaining collective. And indeed, the need for greater flexibility responds to calls for a long time from the business world, which trade unions have shown responsible for looking carefully to the competitiveness of the productive system in the global market. It is therefore a reformer intent certainly feasible, but that must be explained and clarified, they can not simply be assumed or assigned to an extent largely prevalent mechanisms of conciliation and equitable resolution of disputes, supporting a questionable line of legislative action - based on institutions and before trial rather than on substantive - of which the application experience shows all limits.
The problem that arises is therefore to define - in places resulting in the first place in the Parliament - in a timely way, and time limits that make the use of arbitration - as part of employment - is consistent with the need to ensure effective voluntary arbitration clause and adequate protection of rights more relevant employee (other than those guaranteed by the Constitution that are deemed equally non-negotiable). It ie to carry out regulatory changes that go beyond the issue, although important, safeguards are preparing against the dismissal by art. 18 of the Statute of Workers. In this latter regard
last March 11 most of the trade unions and companies has undertaken to define interconfederal agreements that exclude the inclusion of arbitration clause in the resolution of disputes relating to the employment relationship and the Minister of Labour and Social Affairs has in its Once committed to comply with the guidance in the acts of jurisdiction. But while appreciating the significance and value of such commitments, remains the crucial issue of a careful balance between legislation, collective bargaining and individual contracts. Only the legislature can and should establish the conditions to be considered "effective" the will of the parties to arbitration, and it alone can and must determine which are the rights of workers to be protected by mandatory rules of law and regulations which instead leave it to collective bargaining. The latter, in the various levels which make up, can also usefully rely on the clear identification of additional areas of regulation or exemption for individual negotiations adequately assisted to define fairness as well as disputes that arise in these areas. starts in this way, a concerted process, and together they should be inspired by a gradualism, by which to restore the legal certainty which is essential in the regulation of labor relations to ensure effective protection of the weaker party and a actual reduction of litigation in a general context of peaceful evolution of labor relations.
does not seem consistent with the general principles of and with the same approach in paragraph 9 of the examination, which allows you to agree arbitration clauses only where this is provided by interconfederal agreements or collective bargaining agreements, the provision of a supplementary intervention Minister - which among other things not explicitly establishes the regulatory nature nor delimit the content - which should allow, however, even in the absence of the above agreements, within 12 months from the date of entry into force of the law that possibility, and establish the mode implementation and full operation: In fact raises serious doubts such a broad deregulation in ways that are not in line with the provisions of art. 17, paragraph 2 of Law August 23, 1988, No 400.
In addition to the foregoing comments in respect of article 31, it is worth mentioning is the opportunity to reflect on provisions also somehow connected - in articles 30, 32 and 50 - which cover the same proceedings in progress and furthermore are likely, as formulated, to lend themselves to serious doubts as to interpretation and potential litigation. 2. According to Article 20 of the Law, Article 2, letter b) of the Law of 12 February 1955, n. 51, delegating the Government to issue standards for occupational hygiene, is interpreted as meaning that the application of the enabling act is excluded not only - as expressly states the letter b) of Article 2 - for "work on board merchant vessels and aircraft "but also" work on board the ship of state, subject to the right of the worker to compensation for any damage suffered. "
From parliamentary work shows that with that article 20 was intended to prevent the deaths or injuries suffered by crews on ships and military occasioned by contact with asbestos, may continue to apply - as it is happening in proceedings attualmente pendenti davanti ad autorità giudiziarie - le sanzioni penali stabilite dal DPR 19 marzo 1956, n. 303, che disciplina l'applicazione di tali sanzioni, escludendole unicamente nei casi di morti o lesioni subite da personale imbarcato su navi mercantili.
Si ricorda altresì che in materia di tutela della salute e della sicurezza del lavoro, oggi disciplinata dal decreto legislativo n. 81 del 2008, sono previste sanzioni per la inosservanza delle norme in tema di protezione dai rischi per esposizione ad amianto in tutti i settori di attività, pubblici e privati, sia pure con i necessari adattamenti, con riguardo in particolare alle forze armate, peraltro non ancora definiti.
Al di là degli aspetti strettamente di merito, occorre rilevare innanzitutto che l'articolo 20 in esame non esplicita alcuno dei possibili significati dell'articolo 2, lettera b), della legge del 1955 e quindi non interpreta ma apporta a tale disposizione una evidente modificazione integrativa. La norma incide, inoltre, su una legge delega che ha già esaurito la sua funzione dopo l'adozione del DPR attuativo n. 303 del 1956, senza invece intervenire su di esso, risultando di fatto inapplicabile e priva di effetti.
Article 20 also has problematic aspects even in part - in itself widely shared - which concerns the "salvation" of the worker's right to compensation for any damage suffered. In the absence of specific provisions - not found in the law - which place an obligation by the state for compensation, the claim for damages is possible only in the presence of a "without fault or negligence" attributable to a person identified (art. 2043 of the Civil Code). If the effectiveness of the standard generator of liability is undone, resulting in non-punishment of injuries or deaths occasioned on ships of state, it is no longer possible to identify the person legally obbligato e configurare ipotesi di "dolo o colpa" nella determinazione del danno.
Per conseguire in modo da un lato tecnicamente corretto ed efficace, e dall'altro non esposto a possibili censure di illegittimità costituzionale, le finalità che la disposizione in esame si propone, appare quindi necessario escludere la responsabilità penale attualmente prevista per i soggetti responsabili di alcune categorie di navigli, in linea del resto con gli adattamenti previsti dal citato testo unico n. 81 del 2008, e prevedere, come già accade per altre infermità conseguenti ad attività di servizio, un autonomo titolo per la corresponsione di compensation for damage caused to the health of workers.
For the reasons explained before, I ask the room - in accordance with Article 74, first paragraph of the Constitution - a new debate as to what law I passed March 3, 2010 " .
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