Italy

General Principles and Sector-Specific Rules in European Administrative Laws Edited by G IAC I N T O D E L L A C A NA N E A and J E A N - B E R NA R D AU B Y T H E C OM M O N C O R E O F E U R O P E A N A DM I N I S T R AT I V E L AWS General Editors: Giacinto della Cananea, Professor of Administrative Law at Bocconi University; and Mauro Bussani, Professor of Comparative Law at the University of Trieste and Adjunct Professor of Comparative Law at the University of Macau OTHER TITLES IN THE SERIES: Tort Liability of Public Authorities in European Laws Edited by Giacinto della Cananea and Roberto Caranta Administrative Justice Fin de siècle Early Judicial Standards of Administrative Conduct in Europe (1890–1910) Edited by Giacinto della Cananea and Stefano Mannoni Judicial Review of Administration in Europe Procedural Fairness and Propriety Edited by Giacinto della Cananea and Mads Andenas Procedural Requirements for Administrative Limits to Property Rights Edited by Martina Conticelli and Thomas Perroud The Austrian Codification of Administrative Procedure Diffusion and Oblivion (1920–1970) Edited by Giacinto della Cananea, Angela Ferrari Zumbini, and Otto Pfersmann CPP1 The Common Core of European Administrative Law (CoCEAL) project has received funding from the European Research Council (ERC) under the Horizon 2020 Research and Innovation Programme ‘Advanced Grant’ Excellent Science (Grant Agreement No 694697). Great Clarendon Street, Oxford, OX2 6DP, United Kingdom Oxford University Press is a department of the University of Oxford. It furthers the University’s objective of excellence in research, scholarship, and education by publishing worldwide. Oxford is a registered trade mark of Oxford University Press in the UK and in certain other countries © The Several Contributors 2024 The moral rights of the authors have been asserted All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, without the prior permission in writing of Oxford University Press, or as expressly permitted by law, by licence or under terms agreed with the appropriate reprographics rights organization. Enquiries concerning reproduction outside the scope of the above should be sent to the Rights Department, Oxford University Press, at the address above You must not circulate this work in any other form and you must impose this same condition on any acquirer Public sector information reproduced under Open Government Licence v3.0 (http://www.nationalarchives.gov.uk/doc/open-government-licence/open-government-licence.htm) Published in the United States of America by Oxford University Press 198 Madison Avenue, New York, NY 10016, United States of America British Library Cataloguing in Publication Data Data available Library of Congress Control Number: 2024931143 ISBN 978–0–19–886757–9 DOI: 10.1093/oso/9780198867579.001.0001 Links to third party websites are provided by Oxford in good faith and for information only. Oxford disclaims any responsibility for the materials contained in any third party website referenced in this work. Contents Detailed Contents Table of Cases Table of Legislation List of Abbreviations List of Contributors xi xix xxvii xxxiii xxxvii PA RT I G E N E R A L P R I N C I P L E S A N D C OM PA R AT I V E S T U D I E S 1. Introduction Giacinto della Cananea 3 PA RT I I T H E L E G A L SYS T E M S SE L E C T E D F O R C OM PA R I S O N : BAC KG R O U N D A N D P E R SP E C T I V E S 2. Austria Stefan Storr 25 3. China Xiaowei Sun 29 4. France Sébastien Saunier 35 5. Germany Dian Schefold 40 6. Greece Theodore Fortsakis 43 7. Italy Stefano Vaccari, Nicola Berti, and Mauro Silvestri 48 8. Romania Dacian-Cosmin Dragoș 54 9. Serbia Marko Milenković 58 10. Spain Isaac Martín Delgado 64 x Contents 11. Switzerland Alexandre Flückiger 73 12. United Kingdom Gordon Anthony and Conor McCormick 76 13. Venezuela Flavia Pesci-Feltri 80 PA RT I I I C A SE S 14. Cases I. Questionnaire II. Case 1—The rejection of an asylum application III. Case 2—Establishing the ‘rules of the game’ in advance IV. Case 3—A local authority withdraws a licence inaudita altera parte V. Case 4—The unfair dismissal of a civil servant VI. Case 5—A regulator requesting information concerning market abuse VII. Case 6—A taxpayer who disputes the tax authority’s statements VIII. Case 7—The unjustified denial of a licence IX. Case 8—Failure to consult a stakeholder before setting new tariffs X. Case 9—Failure to consult the affected community before building a new gas pipeline XI. Case 10—Refusal to give access to an algorithm PA RT I V 87 87 93 108 126 142 160 175 189 204 217 229 C OM PA R AT I V E A NA LYSI S 15. About the Way General Principles Combine with Sector-Specific Rules in Administrative Procedural Law Jean-Bernard Auby 16. General Principles at the European Level Mads Andenas 17. The Legal Relevance and Significance of Administrative Procedure Legislation Angela Ferrari Zumbini 247 257 274 18. Same Problems, Same Solutions? Giacinto della Cananea 290 Select Bibliography Index 309 313 Detailed Contents Table of Cases Table of Legislation List of Abbreviations List of Contributors xix xxvii xxxiii xxxvii PA RT I G E N E R A L P R I N C I P L E S A N D C OM PA R AT I V E S T U D I E S 1. Introduction Giacinto della Cananea I. The object and nature of this book II. Background and issues A. Principles versus rules: the nature of the distinction B. Principles and rules: a complex relationship C. Do ‘codes’ (of administrative procedure) actually make a difference? III. In search of the ‘common core’ A. A common core research B. A ‘factual’ analysis C. The choice of legal systems IV. The structure of this book 3 3 5 5 11 14 16 16 17 20 20 PA RT I I T H E L E G A L SYS T E M S SE L E C T E D F O R C OM PA R I S O N : BAC KG R O U N D A N D P E R SP E C T I V E S 2. Austria Stefan Storr I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 25 3. China Xiaowei Sun I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 29 25 27 28 29 30 33 xii Detailed Contents 4. France Sébastien Saunier I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 35 5. Germany Dian Schefold I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 40 6. Greece Theodore Fortsakis I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 43 7. Italy Stefano Vaccari, Nicola Berti, and Mauro Silvestri I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 48 8. Romania Dacian-Cosmin Dragoș I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 54 9. Serbia Marko Milenković I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 58 35 36 38 40 40 41 43 44 46 48 50 52 54 54 56 58 59 61 Detailed Contents xiii 10. Spain Isaac Martín Delgado I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 64 11. Switzerland Alexandre Flückiger I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 73 12. United Kingdom Gordon Anthony and Conor McCormick Preliminary comments I. General principles II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making 76 13. Venezuela Flavia Pesci-Feltri I. General principles 80 A. Due process as a fundamental right in the Venezuelan legal system II. Administrative procedure legislation and government guidance: adjudication III. Administrative procedure legislation and government guidance: rule-making PA RT I I I 64 66 70 73 74 75 76 78 78 79 80 80 81 82 C A SE S T H E AU T HO R S O F T H E R E SP E C T I V E C OU N T RY R E P O RT S I N C A SE S 2 – 1 0 A R E T H E S A M E A S I N C A SE 1 U N L E S S O T H E RW I SE N O T E D 14. Cases I. Questionnaire A. B. C. D. Case 1—The rejection of an asylum application Case 2—Establishing the ‘rules of the game’ in advance Case 3—A local authority withdraws a licence inaudita altera parte Case 4—The unfair dismissal of civil servant 87 87 87 87 88 89 xiv Detailed Contents E. F. G. H. I. Case 5—A regulator requesting information concerning market abuse Case 6—A taxpayer who disputes the tax authority’s statements Case 7—The unjustified denial of a licence Case 8—Failure to consult a stakeholder before setting new tariffs Case 9—Failure to consult the affected community before building a new gas pipeline J. Case 10—Refusal to give access to an algorithm II. Case 1—The rejection of an asylum application A. Austria Stefan Storr B. China Xiaowei Sun C. France Sébastien Saunier D. Germany Dian Schefold E. Greece Theodore Fortsakis F. Italy Mauro Silvestri G. Romania Dacian-Cosmin Dragoș H. Serbia Marko Milenković I. Spain Isaac Martín Delgado J. Switzerland Alexandre Flückiger K. United Kingdom Gordon Anthony and Conor McCormick L. Venezuela Flavia Pesci-Feltri III. Case 2— Establishing the ‘rules of the game’ in advance A. Austria SS B. China XS C. France Jean-Bernard Auby D. Germany DS E. Greece TF F. Italy Stefano Vaccari G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F IV. Case 3—A local authority withdraws a licence inaudita altera parte A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy Nicola Berti G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F 89 90 90 90 91 91 93 93 94 94 96 97 98 100 101 102 103 104 105 108 108 109 110 111 112 114 116 118 119 121 122 123 126 126 126 127 129 130 132 134 137 138 139 139 141 Detailed Contents V. Case 4—The unfair dismissal of a civil servant A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy MS G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F VI. Case 5—A regulator requesting information concerning market abuse A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy NB G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F VII. Case 6—A taxpayer who disputes the tax authority’s statements A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy SV G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F VIII. Case 7—The unjustified denial of a licence A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy MS xv 142 142 142 143 147 148 150 152 153 154 156 157 158 160 160 160 161 163 165 166 167 168 169 172 172 174 175 175 175 177 178 179 180 181 184 184 186 186 187 189 189 189 190 192 193 194 xvi Detailed Contents G. H. I. J. K. L. Romania D-C D Serbia MM Spain IMD Switzerland AF United Kingdom GA and CM Venezuela FP-F IX. Case 8—Failure to consult a stakeholder before setting new tariffs A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy SV G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F X. Case 9—Failure to consult the affected community before building a new gas pipeline A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy NB G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F XI. Case 10—Refusal to give access to an algorithm A. Austria SS B. China XS C. France SS D. Germany DS E. Greece TF F. Italy SV G. Romania D-C D H. Serbia MM I. Spain IMD J. Switzerland AF K. United Kingdom GA and CM L. Venezuela FP-F 195 197 198 201 201 202 204 204 204 205 208 208 209 211 211 212 213 214 215 217 217 217 218 220 221 221 222 223 225 226 226 228 229 229 229 233 235 236 237 239 240 241 242 243 244 Detailed Contents PA RT I V xvii C OM PA R AT I V E A NA LYSI S 15. About the Way General Principles Combine with Sector-Specific Rules in Administrative Procedural Law Jean-Bernard Auby I. General principles and their functions in general A. The concept of general principles and categories of general principles B. The functions fulfilled by general principles C. General principles as distinct from sector-specific rules II. Specific orientations of the issue in administrative law and procedural administrative law A. General principles and sector-specific rules in administrative law in general B. General principles and sector-specific rules in procedural administrative law III. Practical modes of combination as illustrated by comparison A. Situations in which no conjunction between general principles and sector-specific rules occurs B. The most common solution: one norm takes priority over the other C. Cumulative application 16. General Principles at the European Level Mads Andenas I. General principles relevant for resolving the hypothetical cases A. General principles of EU law B. ECHR law C. International law principles 17. The Legal Relevance and Significance of Administrative Procedure Legislation Angela Ferrari Zumbini I. Introduction II. Background commonalities and distinctive traits III. The relevance and significance of having an APA in general A. Discussions before codification 1. Austria 2. Germany 3. Italy B. APAs and the extent of judicial power IV. The relevance and significance of having an APA in specific cases A. First-generation procedures (adjudication) 1. The right to a hearing (case 3) 2. Access to files (case 6) 3. The duty to give reasons (case 7) B. Second-generation procedures (administrative procedures aimed at issuing measures having a normative, general administrative, planning, or programming function) 247 247 247 248 249 249 250 251 253 253 254 255 257 257 258 266 271 274 274 275 276 276 276 278 278 279 281 281 281 282 284 284 xviii Detailed Contents 1. The duty to consult all stakeholders equally (case 8) 2. The duty to consult the general public (case 9) 3. Access to the algorithm used by the public administration (case 10) V. Concluding remarks 18. Same Problems, Same Solutions? Giacinto della Cananea I. Introduction II. From problems to solutions A. Diversity of context B. Defining problems C. Comparing solutions III. Commonality and diversity A. The impartial and unbiased adjudicator requirement B. Standardless adjudication? C. Administrative adjudication: procedural requirements IV. Beyond adjudicatory procedures V. Conclusion Selected Bibliography Index 284 285 287 287 290 290 290 290 292 293 294 295 296 298 303 307 309 313