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Looking Back in Anger and Forward in Trust: The Complicate Patchwork of the Damages Regime for Infringements of Rights in Italy

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Damages for Violations of Human Rights

Part of the book series: Ius Comparatum - Global Studies in Comparative Law ((GSCL,volume 9))

Abstract

The chapter analyses the regime applicable to damages for infringements of human rights under Italian law, including the treatment of historical injustices. Before focusing on human rights violations, the essay addresses the case of infringement of constitutional rights, underling the different set rules applicable to it. Finally, it remarks the interplay between principles of domestic jurisdiction and international human rights law, with specific attention to the ECtHR case law. The essay argues that the current regime for human rights infringements resembles a complicate patchwork of separated rules, which are also characterised for a “double standard” of protection of rights, foreign States’ violations of human rights deserving a stricter treatment when compared to domestic violations.

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Notes

  1. 1.

    International obligations result in different consequences under Italian domestic law, depending both on the type of international legal order that established them and the binding status of the relevant rules. Human rights enshrined in supranational legal instruments, such as the European Convention on Human Rights (hereinafter: ECHR), that are the “outcome” of integrated legal systems deserve a more intensive and, from the State’s point of view, “intrusive” protection compared to those stemming from other international charters. In other words, rules prescribing compensation for human rights violations are more likely to result from an integrated international legal order than from the international community as normally understood. On the notion of integrated legal order see McCormick (1993) 17.

  2. 2.

    For the purposes of this study, the word “supranational” is used to identify legal systems that are characterised by high level of integration among their Member States, even though they result purely from international agreements. Indeed integration implies that these legal orders create norms that are more effectively legally enforceable than “ordinary” international norms. See Gerards (2008) 407.

  3. 3.

    For the purpose of this study, human rights are defined as rights that are enjoyed by all individuals subject to a State’s jurisdiction, as also protected by international legal tools: see Feldman (2002). Human rights therefore present themselves as absolute subjective claims that are valid per se and irrespective of their statutory recognition within states: see Zagrebelsky (1992).

  4. 4.

    See Merusi and Clarich (1991) 362.

  5. 5.

    See Colzi (1950) 247.

  6. 6.

    See Cerbo (2009) 1363.

  7. 7.

    See Arts. 68 and 122 of the Italian Constitution .

  8. 8.

    See Merusi and Clarich (1991) 356.

  9. 9.

    See Grossi (1972) 176.

  10. 10.

    According to the liberty/authority dialectic: see Barbera (2007) 4 ff. See also Peces-Barba Martinez (1993).

  11. 11.

    See Cooper Stephenson (2003) 4.

  12. 12.

    See Merusi and Clarich (1991) 393.

  13. 13.

    Constitutional adjudication in Italy involves the scrutiny of legislative acts and the conflicts between powers or between the State and the Regions or between Regions (see Art. 134, Italian Const.); as far as the constitutional review of legislation is concerned, in the event that a declaration of unconstitutionality is issued, Parliament is not legally responsible.

  14. 14.

    See Lanzi (2005) 2773 and 2775.

  15. 15.

    Court of cassation, dec. no. 500, of 22.7.2000, available in Foro italiano, 1999, I, 2487 ff.

  16. 16.

    Court of Cassation, dec. no. 157 of 10.10.2003, available in Foro italiano, 2003, I, 78 ff.

  17. 17.

    See Abbamonte (2000) 743 ff.

  18. 18.

    See Constitutional Court , dec. no. 184 of 1986. See Ponzanelli (1986) 2053 ff. and Abbamonte (2000) 760 ff.

  19. 19.

    See Silvestri (2009) 10–11.

  20. 20.

    See Court of Cassation, dec. no. 7713 of 6.6.2000. Legal scholars criticised the criteria developed by the Supreme Court. They seem to favour a different doctrine, which identifies the rights that merit protection inter alia through compensation on the basis of their content and on the type of violation committed, rather than on the basis of their mere classification as “constitutional rights”. On this point see the arguments offered by Principato (2001) 4176 ff. From this perspective only “personal rights” exempt the claimant from the burden of proof. Personal rights are rights that are not absolute, not amenable to pecuniary assessment, and not susceptible of disposal, transferral or prescription: see Messineo (1957) 142.

  21. 21.

    However the existence of the ECtHR, which is charged with the scrutiny of violations of such rights and decisions of which apply within domestic jurisdiction, provides for an alternative instrument, at least in some cases. See infra 10. 4.

  22. 22.

    This process has something do to with the constitutionalization of international law: see Cohen (2012) XVff.; Jarmul (1996) 334 and Nardin (1987) 416.

  23. 23.

    Pursuing to the well known Francovic case, ECJ, dec. 19.11.1991, C-6/90 e C-9/90.

  24. 24.

    Court of Rome, Mustacchia v. Ministero di grazia e giustizia, dec. of 7.8.1984, Temi Romana, 1985, 977. See Francioni (1997) 16 ff.

  25. 25.

    See dec. of 27.5.1992, in Rivista internazionale dei diritti dell’uomo, 1992, 1151 ff. See also Vezzani (2010) 1148 ff.

  26. 26.

    See Izar (2002) 957 ff.

  27. 27.

    Which was eventually completed by the Italian Constitutional Court : see Ruggeri (2008) 217.

  28. 28.

    See dec. no. 28507 of 23.12.2005; on this issue Vezzani (2010) 1149.

  29. 29.

    See Court of Cassation, dec. no. 15746 of 11.7.2006 and no. 16284 of 10.7.2009.

  30. 30.

    See Fabri (2009) 10 ff. See also Angelini (2010) 89 ff. spec. 97 and Corongiu (2001) 1003 ff.

  31. 31.

    As far as the matter of jurisdiction is concerned, the Law specifies that the complaint must be addressed to the president of the court of appeal responsible for deciding on judicial liability within the district in which the case alleged to constitute violation was settled: see Art. 4(1), which refers to Art. 11 of the Code of Criminal Procedure. One of the most controversial issues, which lies partially beyond the scope of this study, is the classification of the “process”, the excessive duration of which caused the harm: see Focarelli (2005) 5163 ff.

  32. 32.

    In any case, Art. 3 stipulates that the amounts shall be liquidated insofar as possible taking account of actually available resources. Indeed, with a view to granting effective compensation but also safeguarding public resources, Art. 5-quinquies lays down specific rules on foreclosures and seizures of public goods. On the uncertainties and difficulties of the law enforcement, see Sanna (2011) 160 ff.

  33. 33.

    The minimum amount is 500 euros, while the maximum is 1500 euros. In both cases, the amounts are compensated for each year or part thereof (subject to a minimum of 6 months) in excess of the reasonable duration of the trial concerned. Initially, the Law provided that non-pecuniary losses should be compensated also through “appropriate forms of publicity of the decision holding that a violation has occurred”: see Art. 2(3). The provision was eventually repealed by Art. 55(1)(a)(3) of Decree-Law no. 83 of 22.6.2012, converted into Law no. 134 of 7.8.2012.

  34. 34.

    While punitive damages are normally not awarded to the successful claimant.

  35. 35.

    See Court of Cassation, judgment no. 6725 of 2005.

  36. 36.

    See Court of Cassation, judgment no. 1999 of 14.10.2005.

  37. 37.

    Court of Cassation, judgment no. 8716 of 13.4.2006. See Azzalini (2012) 1707B.

  38. 38.

    See Art. 2-quinques(a)-(f). Moreover the Act extends to heirs who have standing to sue in order to claim damages for the violation of the right to a trial in a reasonable time suffered by a deceased relative.

  39. 39.

    See Decree-Law no. 83 of 22.6.2012, converted into Law no. 134 of 7.8.2012.

  40. 40.

    See Azzalini (2012) 1702 ff.

  41. 41.

    See Azzalini (2012) 1707.

  42. 42.

    See Chindemi (2008) 690 ff.

  43. 43.

    See Azzalini (2012) 1707B.

  44. 44.

    The Law provides that the court hearing the civil proceedings seeking compensation shall consider the specific circumstances of the case as well as the complexity of the legal issues to be decided: see Art. 1.

  45. 45.

    See Sects. 10.4 and 10.5.

  46. 46.

    See Art. 35 ter, L. no. 354 of 1975 as amended by Art. 1, l. no. 117 of 2014, in O.G. 20.8.2014, n. 192.

  47. 47.

    Thus pushing commentators to qualify this measure as part of the compensation regime: see Gori (2014) 1.

  48. 48.

    The law prescribes that the judge shall award eight euros for each day of impairment suffered by the detainee.

  49. 49.

    See supra 10.2.1.

  50. 50.

    The summary is, to some extent, approximate. The constituent phase was indeed more problematic and has its own unclear points as regards the full and effective rejection of the authoritarian regime. Some of the constitutional provisions remained unenforced for a long time; at the same time, many of the statutory provisions of codes and laws approved during the Fascist period remained in force until their progressive demolition by the Italian Constitutional Court . On this issue see Paladin (1997) 102 ff. and Mortati (1931). See also Bognetti (1982) 435 ff.

  51. 51.

    See Speciale (2012) 115 and Falconieri (2012) 139 ff.

  52. 52.

    A series of provisions concerning pensions for the surviving victims of Fascism: see Arts. 4–7 of Law no. 96 of 1955. In the aftermath of the Second World War and before the Terracini Law was passed, the transitional government issued a series of decrees repealing all of the decrees and laws that had previously been directed at and discriminated against the Jewish population. Furthermore, the new measures fully restored the civil, political and economic rights of Jewish citizens: see Royal Decree-Laws no. 24 of 1944 and no. 26 of 1944. On this point see Falconieri (2012) 139.

  53. 53.

    See Art. 1 of Law no. 96 of 1955.

  54. 54.

    See Art. 6 of Law no. 12 of 25.1.1962.

  55. 55.

    This was the case for the so-called “marocchinate”, that is the gross violation of human rights perpetrated by Moroccan-French troops in central Italy in May 1944. See Speciale (2012) 117.

  56. 56.

    See Arts. 10(1) and 22 of Law no. 648 of 10.8.1950; Arts. 9(1) and 11 of Law no. 313 of 18.3.1968; Arts. 1, 8(1), 11 and 83 of Presidential Decree no. 915 of 28.12.1978.

  57. 57.

    See Constitutional Court , dec. no. 561 of 18.12.1987.

  58. 58.

    Art. 1 of Law no. 17 of 16.1.1978 specifies that the word “Jewish” written down on the registry office certificate shall be held as proof of moral damages .

  59. 59.

    See Court of Auditors, 1st Division, judgment of 27.1.2003, central appellate instance and of 11.11.2002, central appellate instance.

  60. 60.

    See Court of Cassation, Joint Divisions, Ferrini v. Germany , dec. no. 5044 of 11.3.2004, available in Rivista di diritto internazionale, 2004, 539 ff.

  61. 61.

    See Court of Cassation, Joint Divisions, Mantelli v. Germany , dec. no. 14201 of 29.5.2008. See Gaeta (2011) 305 ff. See also De Vittor (2008) 632 ff. and Persano (2008) 2259 ff.

  62. 62.

    See Al-Adsani v. United Kingdom , App. no. 35763/97, 21.11.2001 (joint dissenting opinion of judges: Rozakis, Caflish, Wildhaber, Costa, Cabral Barreto, Vajić, par. 3) and Kalogeropoulou and ors. v. Greece and Germany , App. no. 59021/00, 12.12.2002.

  63. 63.

    This conclusion is highly arguable: indeed Italian international scholars have argued that the Supreme Court used the general categories of crimes against humanity, serious violations of human rights and international individual crimes in an inconsistent and not entirely appropriate manner: see Pisillo Mazzeschi (2012) 310 ff.

  64. 64.

    The case arose in relation to the massacre committed at Civitella, Cornia and S. Pancrazio on 26.6.1944. The massacre caused the death of 203 civilians and was committed by the German armed forces as a reprisal for the murder of 4 German soldiers. See Frulli (2009) 442 ff.

  65. 65.

    This seems to be the position of the majority of international law scholars: see ex multis Zimmerman (1995) 438 ff. and Brömer (1997) 195 ff. Among Italian scholars see Marongiu Buonaiuti (2011) 236 ff. Furthermore, the derogation from the principle of State immunity was substantially undisputed in the 1930s and 1940s: see Verdross (1937) 571 ff. and Lauterpacht (1937) 306 ff.

  66. 66.

    See for example Court of Cassation, Repubblica federale di Germania c. Amministrazione regionale della Vojotia, dec. no. 14199 of 29.5.2008, in Rivista di diritto internazionale, 2009, 594 ff. On this issue see Gavouneli (1997) 595 ff. and Bordoni (2009) 496 ff.

  67. 67.

    Jurisdictional Immunities of the State ( Germany v. Italy: Greece intervening), Judgment, I.C.J. Reports 2012, p. 99. The decision raised a significant scholarly debate: see ex multis Marongiu Buonaiuti (2011) 232 ff. For the effects of the decision in the Italian legal order, see Salerno (2012) 350 ff.

  68. 68.

    As opposed to acts iure gestionis, that is those concerning non-sovereign act of the State, especially private and commercial acts.

  69. 69.

    See Jurisdictional Immunities of the State ( Germany v. Italy: Greece intervening), Judgment, par. 70–81. The only exceptions to the aforementioned State practice seem to be the cases of Italy and Greece.

  70. 70.

    See Jones v. UK, dec. 14.1.2014, App. nos. 34356/06 and 40528/06, par. 198.

  71. 71.

    Court of Appeal of Turin, 3rd Civil Division, Germany v. De Guglielmi, dec. of 14.5.2012, reg. no. 1470/10.

  72. 72.

    As it is clearly evident from the travaux préparatoires: see Third Commission for Constitutional Affairs, 19.9.2012 – Chamber of Deputies, act no. 5434.

  73. 73.

    See Art. 3, par. 2, Law no. 5/2013, adding new grounds for the reopening of a proceeding other than those provided for in the Arts. 395 and 306, Code of Civil Procedure .

  74. 74.

    Tribunal of Florence, dec. of 21.1.2014.

  75. 75.

    Stating that “[a]nyone may bring cases before a court of law in order to protect their rights under civil and administrative law”.

  76. 76.

    According to which “[t]he Italian legal system conforms to the generally recognised principles of international law”.

  77. 77.

    See Italian Constitutional Court , dec. 22.10.2014, no. 238, available in Italian at http://cortecostituzionale.it. Accessed 24 March 2015. For a comment see Fontanelli (2014) and Passaglia (2014).

  78. 78.

    See dec. 238/2014, par. 3.2.

  79. 79.

    See CC dec. 98/1965; 18/1982; 82/1996; 26/1999; 29/2003; 386/2004 and 120/2014.

  80. 80.

    On this issue see Passaglia (2014).

  81. 81.

    See Ruggeri (2006) 398.

  82. 82.

    See dec. 238/2014, par. 3.1.

  83. 83.

    See supra note 60.

  84. 84.

    See supra 10.3.2.

  85. 85.

    Randazzo (2007) 673 ff. and Amato (2007) 126 ff.

  86. 86.

    The Italian Constitutional Court has clarified that the ECHR represents an interposed principle of constitutional review of domestic legislation conflicting with the ECHR: see Const. Court, judgements no. 348 and 349 of 2007. On this issue see Ruggeri (2008) 217 ff. and Bartole (2008) 291 ff. For a broader perspective on the interplay between constitutional courts and the European Court of Human Rights as far as the ranking of the ECHR in domestic systems is concerned see Eissen (1990) 137 ff.

  87. 87.

    See Court of cassation, dec. no. 10894 of 11.5.2006.

  88. 88.

    See Court of cassation, dec. no. 14 of 3.1.2008. See also Angelini (2010) 97.

  89. 89.

    See Gitti (2009) 645 ff.

  90. 90.

    The issue is analysed in a broader perspective by Ponzanelli (2012) 611 ff.

  91. 91.

    See Chindemi (2008) 690 ff.

  92. 92.

    See Bianchi (2012) 307 ff.

  93. 93.

    See Court of Rome, Mustacchia v. Ministero di grazia e giustizia, dec. of 7.8.1984, supra note 24.

  94. 94.

    See Vezzani (2010) 1153 ff.

  95. 95.

    See Court of cassation, dec. no. 28507 of 23.12.2005. See contra dec. no. 17650 of 2002 and dec. no. 360 of 2003.

  96. 96.

    See Salerno (2010) 663 ff.

  97. 97.

    See Vezzani (2010) 1152 and Bartolini (2009) 501 ff.

  98. 98.

    On this point see Sironi (2012) 32 ff.

  99. 99.

    ECtHR, dec. of 29.3.2006, application no. 36813/97, Scordino v. Italy. See Azzalini (2012) 1711.

  100. 100.

    ECtHR, dec. of 16.7.2009, application no. 22635/03, Sulejmanovic v. Italy. See Angelini (2010) 97.

  101. 101.

    See also ECtHR, dec. of 23.2.2012, application no. 27765/09, Hirsl Jamaa et al. v. Italy. On this issue see Napoletano (2012) 436 ff.

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Romeo, G. (2016). Looking Back in Anger and Forward in Trust: The Complicate Patchwork of the Damages Regime for Infringements of Rights in Italy. In: Bagińska, E. (eds) Damages for Violations of Human Rights. Ius Comparatum - Global Studies in Comparative Law, vol 9. Springer, Cham. https://doi.org/10.1007/978-3-319-18950-5_10

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