The ruling of the Supreme Court 09/07/2010 No 28699 defines the scope of the subjective application of administrative liability of.
Article. 1 D. Legislative Decree No. 231/2001 is for the Court, unequivocal in concluding the public nature of The necessary but not sufficient for relief from administrative liability arising from crime.
The other requirement, negative, is the failure to exercise, by the independent, di attività economica.
In presenza di un Ente costituito in forma di società, difetta il requisito della natura pubblicistica dell'Ente, dal momento che ogni società (anche “mista”) è costituita, ai sensi dell'art. 2247 del codice civile, allo scopo di esercitare un'attività economica per dividerne gli utili, a prescindere dalla destinazione di questi ultimi, se realizzati.
La sentenza della Suprema Corte in commento precisa l'ambito soggettivo di applicazione della responsabilità amministrativa dell'Ente in un ramo, quello degli enti operanti nel settore sanitario, che negli ultimi tempi richiama sempre più l'attenzione di coloro che, a vario titolo, si occupano del D. Lgs. n. 231/2001.
Despite the apparent clarity (1) The wording of Article. 1 leaves, especially in that area, ample shade in the identification of recipients of the legislation.
to the fact that medical and surgical treatment is, increasingly, turning in a partnership (as well as in the form plurisoggettiva, as a team, but it is outside the present action), it is, indeed, can not " come to terms "with the responsibility" administrative "entity" health facility "top-down by the commission, by qualified persons, one of the crimes contained in the" catalog "(ever expanding) di cui agli artt. 24 e ss. del d. lgs. n. 231/2001.
Questo sia in conseguenza dell'introduzione, nel suddetto “catalogo”, di fattispecie criminose tipiche (di norma di scarsa applicazione, ma che in ambito sanitario trovano il “proprium applicativo”) naturaliter afferenti alla struttura sanitaria (è il caso della commissione del reato di cui all'art. 583 bis del codice penale, inserito nell'art. 25 quater del decreto con legge 9/1/2006 n. 7: pratiche di mutilazione degli organi genitali femminili commesse all'interno della struttura sanitaria), sia in relazione alla possibilità che, all'interno della struttura sanitaria, vengano commessi altri tipi di reato, suscettibili di generare responsabilità "Administrative" structure.
Regarding these "other" crime, crimes against the public administration (articles 24 and 25 of Legislative Decree no. 231/2001) appear to be the kind of choice in the context of health care facilities: just think of the scandal " Medical malpractice "of the early nineties and one of the most recent one of the operations, carried out at health facilities, unnecessary (in the sense that some surgical procedures such as inserting heart valves were made in spite of the clinical care of patients would be faced with only drug) in order to obtain reimbursement of the intervention by the region: in this case, liability individual criminal in chief to the legal representative of the structure was complemented by the "administrative" in the structure ex d. lgs. No 231/2001, descended from the commission of the offense of aggravated fraud against the State.
The scam, after all, was the "predicate offense" also covered by the decision of the administrative responsibility in a comment.
In particular, in criminal proceedings against "X" (the legal representative of the corporation "mixed" Alfa, specialized inter-hospital recognized) and "Y" (the legal representative of the corporation Beta, the participating companies Alpha in the misura del 49%: per il restante 51% la società Alfa era partecipata da capitale pubblico), indagati per il reato di truffa, e delle società Alfa e Beta ai sensi del D. Lgs. n. 231/2001, il Giudice per le indagini preliminari disponeva, ai sensi dell'art. 54 del D. Lgs. n. 231/2001 (2), il sequestro preventivo di 2.760.000,00 di euro a carico del bilancio delle predette società.
Il Tribunale del riesame emetteva ordinanza, con cui annullava la misura cautelare reale, sulla base della natura pubblicistica della società Alfa.
Il Pubblico Ministero presso il Tribunale del riesame ricorreva per cassazione, domandando l'annullamento dell'ordinanza suddetta sulla base delle seguenti argomentazioni:
a) nonostante Recognition, by ministerial decree, the company specialized inter-Alfa as a hospital, the operating agent still in the form of joint-stock company "mixed", since 49% owned by private equity (the company's beta), and for the remaining percentage from public capital;
b) on the basis of the determination by Cass. Civ., SS.UU., 06/05/1995 No 4989 (3), the company "mixed" (ie, participated by public and private capital) must prevail private nature, resulting in the subjugation of The arrangements in D. Legislative Decree No. 231/2001 and applicability of the precautionary measures and sanctions provided by that legislation;
c) no relevance is due to the fact that the activity of the company Alfa has nature of public interest (as it was carried out also in a purely private) and one for which the company was controlled by local health authorities, in reality only formal control, but in substance not exist;
d) the pursuit of a profit is not incompatible with the management of public services, public law or of interest, since the same act with the Regional Council had asked the companies owned by the territorial organization to move towards Article. 6 D. Legislative Decree No. 231/2001;
e) the fact that the administrative responsibility of the Government is also apparent the commission of crimes such as bribery, in which the necessary qualification of the offender requires the subjective nature of journalism carried out, is clear indication that the legislation referred to in D. Legislative Decree No. 231/2001 shall also apply to organizations equipped with private subjectivity, but engaged in public services.
The Supreme Court upheld the appeal by the prosecutor, arguing that Article. 1 D. Legislative Decree No. 231/2001 was unequivocal in concluding the public nature of The necessary but not sufficient for relief from administrative liability arising from crime.
The other requirement, according to the Court, is negative and is represented by non-exercise by the Body, di attività economica.
Ad avviso del Supremo Collegio, nel caso in esame difetterebbe già il requisito della natura pubblicistica dell'Ente, non già in virtù del richiamo alla giurisprudenza delle Sezioni Unite civili, richiamata dal Pubblico Ministero (cfr. nota 3), ma – ancor prima – per il fatto che Alfa aveva forma di società per azioni e che ogni società (anche “mista”) è costituita allo scopo di esercitare un'attività economica allo scopo di dividerne gli utili (4), a prescindere dalla destinazione di questi ultimi, se realizzati.
Né a miglior sorte, per la Cassazione, arride l'ulteriore argomentazione della difesa della società Alfa, secondo la quale that body would not only be qualified as a public body, but also as a body to perform functions of constitutional significance (in this case, the protection of health under Article 32 of the Constitution).
It follows, for the defense of the Body, the inapplicability of the same discipline D. Legislative Decree No. 231/2001, under the third paragraph of art. 1 (see footnote 1).
The Supreme Court has considered this unfounded assumption, as based on confusion between the value of health with the constitutional significance of the institution or its function, reserved exclusively for individuals (at least) mentioned in the Constitution.
Neither would be possible - for the Supreme Court - consider the constitutional function of a public limited company (which is still to realize an economic profit).
the court concluded that, to think differently (ie regarded as sufficient for exemption from the applicability of the Legislative Decree no. 231/2001, the mere constitutional importance of the values \u200b\u200binvolved in the function of the entity), is the absurd result would escape the scope of application of administrative liability a very large number of institutions operating in many different areas (as well as health, that of education, scientific research, environmental protection and so on to enumerate those that the Court defines values constitutional status and functions).
The court ruling is to be shared on the basis of the tendency to question the exclusion of the public nature of health institutions from the list of recipients of the legislation referred to D. Legislative Decree No. 231/2001, especially in light of overcoming the qualifying dates of ASL as a "regional entity instrumental" (ex art. 3 Leg. No 502/92), introduced by definition (a work of art. 3 , paragraph 1 bis of Legislative Decree no. 502/1992, novella by Legislative Decree no. 229/99) of "public entity with legal personality, although with corporate autonomy and professionalism, and operating under the rules private law. "
This "metamorphosis" (5) è dovuta al processo di “de-pubblicizzazione” della A.S.L. e delle Aziende Ospedaliere, processo registrato anche dalla giurisprudenza (6).
Permangono, tuttavia, difficoltà sostanziali per ricondurre alla categoria degli enti pubblici economici le A.S.L e le Aziende Ospedaliere, consistenti:
a) nella carenza di esercizio di poteri autoritativi (prerogativa della Regione);
b) nel fatto di erogare un servizio di interesse pubblico a prescindere da finalità lucrative, atteso il vincolo di pareggio del bilancio tra costi/ricavi e la natura pubblica del sistema di finanziamento, nonché la fissazione amministrata del prezzo delle prestazioni.
Va, tuttavia, ricordato che l'esclusione the nature of a public business was partly mitigated by the experience of some regions such as California (with Council Resolution 11 / 6 / 2004 No VII/17864), who have voluntarily decided to adopt tools prevention and organizational borrowed from the organizational model ex D. Legislative Decree No. 231/2001.
They, in other words, to borrow the criteria considered in D. Legislative Decree No. 231/2001, in starting the pilot project on public health agencies in the introduction of a code of ethical behavior Lombard, aimed at the prevention of the creation of violations of administrative employees from the crimes referred to in d. lgs. 231/2001.
code of ethics that meets the expectation the Lombardy region to have local health development is the relationship of trust with our stakeholders is functional to the pursuit of the goals of public health.
Such an "approach" to the D. Legislative Decree No. 231/2001 does not play certain symbolic nature, given the fact that this resolution encourages the research for the application of a Code "compliance with which is aimed at prevention of possible abuse".
Therefore, an aim which coincides with the ratio of the organizational model ex D. Legislative Decree No. 231/2001, which is the key organization in pre-penal. Mr. Salvatore Antonio
Notes:
1) Art 1 D. Legislative Decree No. 231/2001: Subjects. - 1. The This Decree regulates the liability of legal entities for violations of administrative employees from crime. 2. The provisions in it apply to publicly provided legal personality of companies and associations, including those without legal personality. 3. Not apply to the State, local governments, other non economic public bodies and the bodies that perform important constitutional.
2) Art 54 D. Legislative Decree No. 231/2001: Attachment. 1. If there is good reason to believe that missing or disperse the guarantees for the payment of the penalty, the costs of the proceedings and any other amounts owed to the treasury of the State, the prosecutor, in any stato e grado del processo di merito, chiede il sequestro conservativo dei beni mobili e immobili dell'ente o delle somme o cose allo stesso dovute. Si osservano le disposizioni di cui agli articoli 316, comma 4, 317, 318, 319 e 320 del codice di procedura penale, in quanto applicabili.
3) Con tale sentenza, le Sezioni Unite della Cassazione Civile hanno stabilito che una volta effettuata l'opzione, da parte dell'Ente Pubblico, di gestire i pubblici servizi a mezzo di società per azioni a prevalente capitale pubblico locale, il rapporto tra l'ente pubblico e la persona giuridica privata partecipanti alla società per azioni “mista” è di assoluta autonomia, e la società “mista” opera come persona giuridica private exercise of their autonomy negotiations, without any connection to the public body concerned and which has assumed the obligation to operate the service.
4) Art Civil Code 2247: With the agreement of two or more companies give goods or services for the joint exercise of economic activity in order to divide the profits.
5) the experience of the ASL and experimental hospitals Lombard, cf. S. Bartolomucci, "The health sector: scenario analysis between prosecution prior ex-Leg. 231/2001 and clinical governance", in "The administrative responsibility of companies and agencies," No 3 / 2009, p.. 43 et seq.
6) Tar No Toscana 5101 of 17/9/2003, that on account of the nature of legal entity independent entrepreneurial nature, has refused to apply Article. No. 2 14/4/10 rd 639, as a special tool to order tax restricted to local authorities and compulsive instrumental in the recovery of its debts, which should aim to direct and definitive classification of them as public entities, such as falling between those covered by the d . lgs. No 231/2001 (qualified them as the TAR Calabria Section II Sent. 04/05/2002 n. 809).
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