Riforma costituzionale e bonapartismo

Sottotitolo: 
La combinazione fra riforma della Costituzione e legge elettorale iper-maggioritaria come strumento di compressione del pluralismo politico e della dialettica democratica. 

Come la costituzione vigente è il prodotto di un’assemblea elettiva così la sua revisione non può avere una diversa provenienza: deve cioè essere opera del Parlamento senza interferenze governative. Viceversa, lo stile di gestione di questa riforma della costituzione è identico a quello esibito nel corso della vicenda del disegno di legge-delega chiamata (chissà perché) Jobs Act. Una vicenda che è stata marcatamente segnata dal protagonismo del governo. Cosa che, se è comprensibile in presenza di una legge-delega purché non risulti (come in quel caso) prevaricante, è assolutamente censurabile quando la discussione verte sulla revisione di un patto che, come quello costituzionale, sta sopra la politica di tutti i giorni. Altrimenti, va a finire che succede quel che è successo: incurante che la costituzione sia paragonabile alla carta d’identità di un paese – di tutto il paese e non solo di una sua parte – Matteo Renzi ha trasformato il giudizio popolare sulla riforma in un giudizio sull’operato del governo e dunque in un plebiscito che evoca suggestioni bonapartiste.

Ad ogni modo, nemmeno la vocazione a semplificare faccende complesse esenta dal commettere pasticci. Lo si è visto anche stavolta. Il colmo è stato raggiunto allorché si è dovuto ridisegnare il Senato.

La norma che lo riguarda è un semi-lavorato, povero di indicazioni precise e ricco di nebulosità. Quel che se ne ricava non consente di prevedere se l’istituzione avrà un futuro di cui fidarsi né come riuscirà a formarsi un’identità di cui andare orgogliosa. Il solo dato inequivocabile è che i suoi 100 componenti si suddividono in consiglieri regionali (74), sindaci (21: 1 per regione) eletti dai consigli regionali e illustri personalità (5) nominate (per 7 anni) dal Presidente della Repubblica.

A parte l’inspiegabilità della partecipazione di artisti o scienziati o letterati ad un organismo di rappresentanza (non della Nazione, ma) degli enti territoriali se non come un omaggio alla memoria della figura dei senatori a vita che scompare, la principale singolarità del nuovo Senato risiede nella folta presenza di membri part-time e nell’alto tasso di turn-over dei medesimi. A tempo parziale, infatti, saranno sia i consiglieri regionali-senatori che i sindaci-senatori e ciascuno di loro non potrà mantenere il laticlavio se, per qualunque motivo, dovesse abbandonare la carica istituzionale in ragione della quale è stato designato. Comunque, le incertezze più gravi si addensano sulla legittimazione e sul ruolo del nuovo Senato.

Anche a questo proposito si sa pochissimo. Può dirsi soltanto che, contrariamente a quanto si sente stancamente ripetere, non è vero che il bicameralismo sia finito. A dispetto del mantra della rapidità dei processi decisionali e del risparmio dei costi della politica, da paritario (come è stato finora) si è convertito in un bicameralismo differenziato (ma si potrebbe anche dire: azzoppato). Infatti, la formazione delle leggi costituzionali (inclusa la revisione della costituzione) e, limitatamente ad alcune materie scarsamente omogenee, delle leggi ordinarie continuerà ad essere sottoposta ad un regime bicamerale.

Il mutamento istituzionale risente visibilmente della maldestra mediazione intervenuta tra gli abolizionisti del bicameralismo perfetto e i suoi fautori, convinti che sia una irrinunciabile garanzia. Priva di risposta infatti è rimasta la domanda consistente nel sapere se e come si giustifica la facoltà di legiferare (persino in materia costituzionale) da parte di un organismo che non è eletto a suffragio universale e diretto. Evidentemente, l’inconciliabilità delle posizioni in campo non consentiva di rispettare il crono-programma fissato dal governo e, allora, per uscire dall’impasse si è optato per il rinvio ad una legge che non c’è. Il rinvio è contenuto in una formula di sapore oracolare: i 74 consiglieri regionali saranno “eletti” dai rispettivi consigli “in conformità alle scelte che saranno espresse dagli elettori”. Ovviamente, la medesima legge dovrà inoltre chiarire come saranno scelti i 21 sindaci.

Può sembrare paradossale che la riforma costituzionale sia approssimativa e lacunosa proprio per quanto attiene all’istituzione che era nel centro del mirino fin dall’inizio. A ben vedere, invece, non è una stranezza. Il fatto è che durante il suo iter parlamentare è stato approvato l’Italicum, figlio dell’accordo Renzi-Berlusconi noto come patto del Nazareno, e il Senato è diventato il terreno sul quale organizzare (sia pure tardivamente) una qualche resistenza, se non per contrastare, almeno ridimensionare il culto della governabilità sacralizzato da una legge per eleggere i (soli) deputati: maggioritaria, con premio e abolitiva della doppia fiducia.

In effetti, in presenza di regole che permettono ad un solo partito di formare il governo anche se espressione di una minoranza di votanti e lo esonerano dal chiedere la fiducia al Senato, perché gli basta ottenerla alla Camera del deputati, non è da visionari presagire la compressione del pluralismo politico-culturale e in conseguenza della dialettica democratica.

Uno sguardo d’insieme permette infatti di capire come e quanto l’Italicum sia stato influenzato dall’idea dell’uomo solo al comando.

Ottiene la maggioranza assoluta dei seggi della Camera (340 su 630, ossia il 54%) il partito che al primo turno supera il 40 % dei voti  o, in alternativa, che batte l’avversario al ballottaggio:  indipendentemente, in entrambe le ipotesi, dal numero dei voti. Ciò significa che il leader vittorioso ha in tasca la designazione alla premiership: il Presidente della Repubblica non può non dargli l’incarico a formare il governo e la fiducia della Camera è scontata. Non a caso, la ministra Maria Elena Boschi ha già detto che breve ormai è la distanza tra il regime parlamentare risultante dalla riforma e il regime presidenziale. Non è un’affermazione imprudente. In quanto contiene l’annuncio della prossima riforma, è sincera.

Per questo, il dibattito sulla riforma del sistema bicamerale è stato condizionato dall’esigenza di evitare che, combinandosi con l’Italicum, l’innovazione costituzionale determini il corto-circuito della democrazia rappresentativa, una volta che con l’eliminazione della doppia fiducia venga tolta al Senato la funzione d’indirizzo politico e di controllo sull’azione del governo. Come dire: la chiave di lettura della riforma costituzionale va cercata al di fuori del testo riformato e trovata dentro le dinamiche che si svilupperanno in applicazione dell’Italicum. Infatti, l’orizzonte di senso della riforma è tracciato da una legge elettorale pensata per attuare la costituzione che verrà e da una revisione di quella che c’è trainata da una legge elettorale che ammicca al presidenzialismo. Più che insensato, il percorso è spericolato, perché la tenuta costituzionale della legge elettorale è precaria.

Il Tribunale di Messina, il più sollecito tra quanti finora interpellati, ha già ritenuto non manifestamente infondato il sospetto della sua incostituzionalità per lesione dei principi fondamentali della rappresentanza democratica e su di esso la Consulta dovrà pronunciarsi. Non è questa la sede per analizzare la motivazione dell’ordinanza di rimessione all’Alta Corte. Conta piuttosto mettere in evidenza due osservazioni conclusive. Prima: le argomentazioni sono ricalcate su quelle di recente svolte dalla stessa Consulta per bocciare il Porcellum praticato in occasione delle ultime elezioni. Seconda: l’Italicum gli somiglia pericolosamente. Il che significa che la riforma costituzionale è stata approvata da un Parlamento politicamente delegittimato che, proprio per questo motivo, avrebbe dovuto limitarsi a produrre una legge costituzionalmente corretta in base alla quale rinnovare i suoi componenti, e non incamminarsi verso il cambiamento del sistema costituzionale.

Umberto Romagnoli

Umberto Romagnoli, già professore di Diritto del Lavoro presso l'Università di Bologna. Membro dell'Editorial Board di Insight.

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