| Italy: Integrity Scorecard Report > Sub-Category: Executive Accountability | ||
| Indicators | Score | |
| 23 | In law, can citizens sue the government for infringement of their civil rights? | 100 |
| 24 | Can the chief executive be held accountable for his/her actions? | 100 |
| 25 | Is the executive leadership subject to criminal proceedings? | 50 |
| 26 | Are there regulations governing conflicts of interest by the executive branch? | 53 |
| 27 | Can citizens access the asset disclosure records of the heads of state and government? | 100 |
| 28 | In practice, official government functions are kept separate and distinct from the functions of the ruling political party. | 100 |
Indicator and sub-Indicator Details
| 23 | In law, can citizens sue the government for infringement of their civil rights? | |||||||
| 23: In law, can citizens sue the government for infringement of their civil rights? | ||||||||
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Comments: References: Arts. 24, 96, and 113 of the Constitution. Art. 24: Everyone can take judicial action to protect individual rights and legitimate interests. The right to defence is inviolable at every stage and moment of the proceedings. The poor are assured, through appropriate institutions, the means for action and defence before all levels of jurisdiction. The law determines the conditions and the means for the reparation for judicial errors Art. 96: The President of the Council of Ministers and the Ministers, even if they resign from office, are subject, for crimes committed in the exercise of their duties, to normal justice, provided authorization is given by the Senate of the Republic or the Chamber of Deputies, in accordance with the norms established by Constitutional Law. Art. 113: Against acts of the public administration the judicial safeguarding of rights and legitimate interests before the organs of ordinary or administrative justice is always permitted. Such judicial protection may not be excluded or limited in particular kinds of appeal or for particular categories of acts. The law determines which judicial bodies are empowered to annul acts of public administration in the cases and with the consequences provided for in the law itself.
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| 24 | Can the chief executive be held accountable for his/her actions? | |||||||
| 24a: In practice, the chief executive gives reasons for his/her policy decisions. | ||||||||
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Comments: The prime ninister usually replies to MPs' questions during the "question time", and contents are available online (see for example the link above). Information is available on the government website, and journalists have easy access to the executive for questions. References: [ LINK ] [ LINK ] [ LINK ]
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| 24b: In law, the judiciary can review the actions of the executive. | ||||||||
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Comments: References: Arts 103, art 113, art. 134 of the Constitution Art. 103: The Council of State and the other organs of judicial administration have jurisdiction for safeguarding before the public administration legitimate rights and, in particular matters laid out by law, also subjective rights. The Court of Accounts has jurisdiction in matters of public accounts and in other matters laid out by law. Military tribunals in time of war have the jurisdiction established by law. In time of peace they have jurisdiction only for military crimes committed by members of the armed forces. Art. 113: Against acts of the public administration the judicial safeguarding of rights and legitimate interests before the organs of ordinary or administrative justice is always permitted. Such judicial protection may not be excluded or limited in particular kinds of appeal or for particular categories of acts. The law determines which judicial bodies are empowered to annul acts of public administration in the cases and with the consequences provided for in the law itself. Art. 134: The Constitutional Court shall pass judgment on: Controversies on the constitutional legitimacy of laws and enactments having the force of law issued by the State and the regions; Conflicts arising from allocation of powers of the State and those allocated to State and regions, and between regions; Accusations made against the President of the Republic, according to the provisions of the Constitution.
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| 24c: In practice, when necessary, the judiciary reviews the actions of the executive. | ||||||||
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Comments: There have been 16,805 pronunciations of the Constituional Courts since 1956. Apart from the activity of the highest court, when necessary the judiciary reviews the actions of the executive when this constitutes breach of law and not excercise of polical power. See for example the case (July 2007) of Judge Forleo, who has sent to the chambers the authorisation of using phone tapping for criminalizing some members of the executive (and of the Parliament) for particpation in criminal acts. Nevertheless, in order to avoid a political use of justice, members of Parliament have the immunity foreseen in art. 68 of the Constitution, as amended in 2003 to avoid that Silvio Berlusconi be indicted for the SME scandal.
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| 24d: In practice, the chief executive limits the use of executive orders for establishing new regulations, policies, or government practices. | ||||||||
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Comments: In the past months (see the website), the prime minister has taken few orders (Decreto del Presidente del Consiglio) regarding small and temporary events, with minor impact on the state. References: [ LINK ]
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| 25 | Is the executive leadership subject to criminal proceedings? | |||||||
| 25a: In law, the heads of state and government can be prosecuted for crimes they commit. | ||||||||
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Comments: Even the head of the state (president) can be prosecuted for some (few) crimes. References: Arts. 68 and 90 of the Constitution. Art. 68: Members of Parliament may not be required to give account of any opinions expressed or votes cast in the exercise of their functions. Without authorization from the house to which they belong, no member of Parliament may be subjected to a personal search or have their domicile searched, neither may they be arrested or otherwise deprived of personal freedom, or kept in detention, except to enforce a final conviction, or if caught in the act of committing a crime for which arrest is mandatory. Similar authorization is also required before members of Parliament may have their conversations or communications intercepted, or their mail impounded. Art. 90: The president of the republic is not responsible for the acts performed in the exercise of his duties, except for high treason or plots against the Constitution. In such cases he is impeached by Parliament in joint session, with an absolute majority of its members.
Peer Review Comments: Yes, they can be prosecuted for common crimes.
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| 25b: In law, ministerial-level officials can be prosecuted for crimes they commit. | ||||||||
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Comments: After 1993 (Mani Pulite scandal), the parliamentary immunity was revoked in order to let magistrates to clean up the corruptive system pervading Italian politics. In 2003, a new law increased protection for the five highest offices of the state against investigation and prosecution, but in practice it saved Prime Minister Berlusconi from being brought before a court for a big corruption Scandal, known as "SME". References: Art. 68 of the Constitution Art. 68: Members of Parliament may not be required to give account of any opinions expressed or votes cast in the exercise of their functions. Without authorization from the House to which they belong, no member of Parliament may be subjected to a personal search or have their domicile searched, neither may they be arrested or otherwise deprived of personal freedom, or kept in detention, except to enforce a final conviction, or if caught in the act of committing a crime for which arrest is mandatory.Similar authorization is also required before members of Parliament may have their conversations or communications intercepted, or their mail impounded. (as amended with law 140 of June 20, 2003, the so-called "Lodo Schifani")
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| 26 | Are there regulations governing conflicts of interest by the executive branch? | |||||||
| 26a: In law, the heads of state and government are required to file a regular asset disclosure form. | ||||||||
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Comments: Law 441/82 applies to: - members of the Parliament (Senato della Repubblica e della Camera dei deputati); - President of the Council of Ministers, ministries and state undersecretaries; - regional councillors - provincial councillors - town councillors (only for chief towns (capoluogo di provincia) or towns with more than 50,000 inhabitants). Head of the state is not required to disclose assets. References: Law 441 of July 5, 1982
Peer Review Comments: As the social scientist states, a head of state is not required to disclose assets.
Peer Review Comments: The head of state is not required to disclose assets, but in the last few years he has done so as a sign of openness.
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| 26b: In law, ministerial-level officials are required to file a regular asset disclosure form. | ||||||||
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Comments: Law 441/82 applies to: - members of the Parliament (Senato della Repubblica e della Camera dei deputati); - President of the Council of Ministers, ministries and state undersecretaries; - regional councillors - provincial councillors - town councillors (only for chief towns (capoluogo di provincia) or towns with more than 50,000 inhabitants). The head of the state is not required to disclose assets. References: Law 441/82
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| 26c: In law, there are regulations governing gifts and hospitality offered to members of the executive branch. | ||||||||
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Comments: References: [ LINK ]
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| 26d: In law, there are requirements for the independent auditing of the executive branch asset disclosure forms (defined here as ministers and heads of state and government). | ||||||||
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Comments: References: There is no such law.
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| 26e: In law, there are restrictions on heads of state and government and ministers entering the private sector after leaving the government. | ||||||||
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Comments: Members of the executive (prime minister, ministers, vice-ministers, state undersecretaries, Extraordinary Governmental Commissioner (Commissari straordinari di governo)) are not allowed, for 12 months after leaving the government, to: - work for public bodies - work for pivate sector - do professional job in fields related with their role in the government. This rule doesn't apply to members of Parliament. References: Law 215 of July 20, 2004, art. 2.4 [ LINK ]
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| 26f: In practice, the regulations restricting post-government private sector employment for heads of state and government and ministers are effective. | ||||||||
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Comments: In practice regulations can be quite easily bypassed, and no serious sanctions can be enforced. What requires attention is that the actual Government doesn't seem to have political will to tackle conflict of interests seriously. This (but these are only rumors) would be part of a secret agreement with Berlusconi. As these are only rumors, there is no possibility to demonstrate this and the notice should be takes with extreme caution. References: Article by the Authority for Competition and Market (Autorità Garante della Concorrenza e del Mercato) website: www.acgm.it
Peer Review Comments: In practice regulations are easily bypassed. A clear example was the case of Mr. Lunardi, a former Transport minister. He was the owner of one of the biggest engineering enterprises, usually engaging in competitive tender. During his time in office and for the following 12 months he withdrew from all responsabilities in his enterprise and passed them to his wife. The same thing happened in the case of Mr. Berlosconi, the former prime minister: during his term in office his son and daughters formally conducted his various businesses in telecommunications, constructions and others.
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| 26g: In practice, the regulations governing gifts and hospitality offered to members of the executive branch are effective. | ||||||||
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Comments: There is no regulation about gifts and hospitality. Media report several cases of gifts, especially because those gifts were presented during juducial investigation on corruption cases. References: [ LINK ]
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| 26h: In practice, executive branch asset disclosures (defined here as ministers and above) are audited. | ||||||||
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Comments: The answer is not simple: executive branch assets disclosures are audited by the Court of Accounts, during the analysis of the state balance. Such audit is only on conformity with the law (controllo di legittimità ) and not on merit of expenditures. The 5th Commissions of the two chambers of the Parliament do a political review of expenditures, which perhaps cannet be defined as audit. References: Article from the Chamber of Deputies: [ LINK ]
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| 27 | Can citizens access the asset disclosure records of the heads of state and government? | |||||||
| 27a: In law, citizens can access the asset disclosure records of the heads of state and government. | ||||||||
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Comments: Law 441/82 requires the disclosure of assets and, in art.s 8 and 9, rules the right to access: the subjects allowed to have access to such records (art. 8), and the ways of publication (art. 9). Records are published in a specific bullettin References: Law 441/82, art.s 8 and 9 Art. 8 sets the right to access to asset records for all citizens registered in electoral rolls. Art 9 sets the rules of publication, in a bullettin
Peer Review Comments: There is a law that requires asset disclosure (Law 441 of July 5,1982) but the head of state is exempt.
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| 27b: In practice, citizens can access the asset disclosure records of the heads of state and government within a reasonable time period. | ||||||||
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Comments: The Offices of Presidency of the two Chambers prepares annually a bullettiin including all the information required by law 441/82. When the bullettin is ready, it can be accessed at the offices of the Parliament for free by citizens registered in electoral rolls. COnsultation is immediate. References: Email contact with Mr. Lino Duilio secretariat (President of the V Permanent Commission of the Chamber of Deputies)
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| 27c: In practice, citizens can access the asset disclosure records of the heads of state and government at a reasonable cost. | ||||||||
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Comments: Access is free. References: Email contact with Mr. Lino Duilio secretariat (President of the V Permanent Commission of the Chamber of Deputies)
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| 28 | In practice, official government functions are kept separate and distinct from the functions of the ruling political party. | |||||||
| 28: In practice, official government functions are kept separate and distinct from the functions of the ruling political party. | ||||||||
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Comments: Current prime minister, Romano Prodi, is not leading a political party. Some of the ministers are leader of political parties: the minister of Culture (Margherita), the minister of Justice (UDEUR), the minister of Foreign Affairs (DS), the minister of Environment (Verdi). References: Global integrity report 2004, question 26, Country Report Italy; www.governo.it
Peer Review Comments: The Italian political system is fragmented. In order to form a government of coalitions, is necessary to establish compromises between several political parties. At present, some ministers, being leaders of political parties, are using their positions to increase their parties' influence in the center left coalition. In doing so, they are affecting government's effectiveness.
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