italy‘s“minority-constitution“ - unitn.it€˜s“minority-constitution“ la...
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Woelk Italy - Minorities 1
Italy‘s “Minority-Constitution“La Repubblica tutela con apposite norme le minoranze linguistiche.
The Republic takes appropriate measuresto protect linguistic minorities.
1. “Linguistic“ minorities
(ca. 2.8 Mio = 5% of population)
2. Principle of recognition and non-discrimination
• negative protection (anti-discrimination, art. 3 Const.)
• positive protection (specific legislation, art. 6 Const.)
1. Art. 6 Const. as a constitutional principle
2. Who are the minorities? “Linguistic“ groups?
3. Who protects (“la Repubblica“)?
4. Which are the instruments (“con apposite norme“)?
Who are the minorities in Italy?
Constituent Assembly:
• Proposal for ad hoc-provision (art. 108 bis):
“ethnic and linguistic minorities“ in title regarding regional system
• Balance between guarantees for minorities and fundamental rights
• Plenary: fundamental principle – general question
3 principles underlying minority-protection in Italy:
- Identification through linguistic criterion
- Necessity of (legal) recognition
- Territorial protection
Woelk Italy - Minorities 2
Differentiated implementation of art. 6 Const.
Legislator‘s discretion – equality principle
No direct application
• Recognised minorities
- specific international obligations
- domestic provisions of constitutional rank (special statutes)
- Const. Court 28/1982: Slovenes, prov. TS (minimum standard)
• Non-recognised minorities
- Problem of non-implementation
• Only after 50 years: Legge 482/1999minorities recognised, but only potential protection
Woelk Italy - Minorities 3
Recognised and super-protected minoritiesSpecial Statutes – territorial principle
Valle d‘Aosta-Valleé d‘Aoste– General bilinguism, artt. 51, 52 e 54
– Equal standing of languages, art. 38
– Bilingual school
– Unilingual place names
Trentino-Alto Adige/Südtirol and autonomous Provinces BZ + TN– Institutions: “legal personality“ of linguistic groups, art. 56 (vote, veto)
– Pubblic employment: quota-system “proporzionale linguistica“, art. 89
– Separated and parallel school systems, art. 19
– Use of language: subjective right and objectivee bilinguism, artt. 99 e 100
– Bilingual place names
– Ladins (municipalities: tri-linguism and scuola ladina paritetica)
– TN: art. 48.3, 102, 15 Ast and L.P. TN 6/2008 (ladini, mocheni e cimbri)
Friuli-Venezia GiuliaArt. 3 ASt and L. 38/2001 (Slovenes)
Woelk Italy - Minorities 4
Recognised minorities – potential protectionL. 482/1999
Protection of historical linguistic minorities– Recognition: (closed) list of recognised groups
– Territorial principle
– Self-identification, art. 3
Rights foreseen (above all, linguistic and cultural rights)– Education and school, art. 4-6
– Public use, art. 8 e 9
– Place names, art. 10 (in addition)
– Media, art. 12
– Cross-border cooperation, art. 19
– Limited public spending
• (Sectoral) State legislation
• Regional legislationproblems with symbolic dimension (“Spanish slippery slope“)
Woelk Italy - Minorities 5
Const. Court Judgment 159/2009F-VG: L.R. 29/2007 “Friulan Language“
• Special situation in Friuli-Venezia Giulia:
promotion of plurilinguistic reality(Italian, Slovene, Friulan, German)
… but contrast between
- protection of Slovene (L.R. 26/2007) and
- promotion of Friulan (L.R. 29/2007)
• Government challenges the regional law
on Friulan language:
1) Territorial application also outside settlement area
2) Public use of Friulan (Italian as mere option)
3) (Monolingual) place names in Friulan
4) Opting-out system for education in Friulan
5) Method: Friulan as language of teaching
6) Promotion also “out of area“
Woelk Italy Minorities 6
Const. Court:1) – 5) un-constitutional
6) constitutional
Const. Court Judgment 159/2009 - IIF-VG: L.R. 29/2007 “Friulan Language“
• Reconstruction of legislative framework
• Italian as official language of the Republicregional languages at max. co-official, never dominant!
• Territorial character of protection
� Interpretation of Constitution (art. 6)is based on Framework Law 482/1999!
• Shared legislative powers, but…
- coordination and recognition: prerogative and function of State!
- regional legislatoronly further implementation,i.e. no exceptions, but only detailed specific implementation possible
• Different: enactment decrees (special autonomies)
Woelk Italy Minorities 7
Only limited room for
regional legislation:
no possibility of
changing the frame-
work established
by L. 482/1999
“norma interposta“
Const. Court Judgment 170/2010Piemonte: L.R. 11/2009 (“Piemontese Language“)
• Value recognised to “Piemontese language“not only for cultural reasons, but also equal standing with the other(recognised) minority languages in Piemont
• Government challenges the regional law
1) “Piemontese“ not recognized in list of art. 2 L. 482/1999 (“solo dialetto“)
2) Provisions of L.R. unconstitutional
• Region‘s defence: cultural, linguistic diversity of regional community
• Protection of linguistic minorities: “not a subject matter“, “cross-cutting value“
• State: recognition + general principles – Regions: detailed implementation
• Court : L. 482/1999 central; no abstract criteria for definition, but…art. 2 (closed list) and art. 3 (procedure for application)
• State as guarantor of “general public interests“: no legislative competition!
• No regional legitimacy for “recognition“ of protected languages!!! Woelk Italy Minorities 8
Non-recognised minoritiesImmigrant Groups
– Only individual guarantees
– Not “historical“ groups
Sinti e Rom– Excluded from L. 482/1999
– Regional legislation, e.g. L.P. TN 12/2009
– International critique (monitoring reports)
Woelk Italy - Minorities 9
Const. Court Judgment 88/2011F-VG: L.R. 5/2010 (“Veneto dialects in F-VG“)
• Based upon implementation of art. 9 Const. (culture)
• Support by Regions for signs in dialect
• No place names or street signs
• “purely related to financing some activities“
Woelk Italy - Minorities 10
Minorities in TrentinoThree groups: ladini, cimbri, mòcheni,
small, but territorially concentrated
(Val di Fassa, Bersntol, Luserna)
• Specific legislation (schools)• Const. Law 2/2001: autonomy statute (in part. Ladins)• Provincial Law n. 6/2008 (19/06/2008): protection and promotion� Territorial principle� Rights (language use, place names, schools)
� Preservation/promotion of languages (media, resources)
� Strong institutional guarantees: – Conference (concertation, planning and opinions) + separate institutions
– Authority (3 independent experts)
– Dept. for promotion of local linguistic minorities (Provincial Admin.)http://www.minoranzelinguistiche.provincia.tn.it/
– 3 separate and autonomous Institutes for Culture
Conclusive Remarks on Italy
General constitutional principle …– Respect and promotion of diversity
– Recognition of the right to be different
Strong differentation in protection - asymmetries:– sources (level of guarantee)
– degree of protection (efficacy)
– “strong“ and “weak(er)“ minorities
Equality principle imposes differentiated treatment– Which is the right balance?
– Which and where are the limits?
Dynamic process – inclusive!!!
Woelk Italy - Minorities 11
Woelk The case of South Tyrol 13
Population
City of Bolzano/Bozen
26,62
72,59
0,79
Population 1999
0
200.000
400.000
600.000
462.542 97.232 18.379 34.120
Total Bz Brx Me
Census 2001
69,1526,47
4,37
German (+ 1,16)Italian (- 1,18)
Ladin (+ 0,01)
(in %)
Census 1991
4,36
27,65
67,99
Woelk The case of South Tyrol 15
20th century - overview
71960-61 SouthTyrol before UN
71961-64 negotiationsCommission of “19”
7 1969 "Package"
71992 Formal
Conflict Settlement
71919 Treaty ofSt. Germain,annexationby Italy
71939
Option
FascistOppression
71946 Gruber-De GasperiAgreement
71957 “Losvon Trient“
71948 FirstAutonomyStatute
Protests, terror
1st Autonomyregional basis
7 1972 2nd Autonomy Statute
Implementation "Dynamic" aut.
2nd Autonomy
1920 1940 1960 1980 2000
Woelk The case of South Tyrol 16
Gruber-De Gasperi Agreement 1946
– equality of rights with Italian citizens
– special safeguard-provisions
– autonomy for German speaking population
– appropriate ethnical proportionsin public service
– education in mother tongue
– equal status of German and Italian languages
•Main Points:
• Result of bilateral negotiations Italy-Austria
• Annex IV of Paris Peace-Treaty with Italy
• International foundation for ST autonomy
Woelk The case of South Tyrol 17
The "Model" and its Different Levels
“Foreign“ Affairs and Relations (kin-State, CBC, EU, …)
Integrationinto the State
AutonomousPowers
Group-relationswithin theautonomous entity
Content:
�Negotiations and specialprocedures (joint commissions)
�Consensus and cooperation
�Mechanisms of control
Process and procedures:Compromise:
• Recognition of (cultural) differences
• Autonomy as (internal)self-determination
• Subdivision and delimitation of spheres of influence
Woelk The case of South Tyrol 18
Joint Commissions - Composition
State Region/Province
Commission “of 12“
for the Region
Commission “of Six“
for the Province
of South Tyrol
German speaker Italian speaker
Provincial Assembly
Trentino
Regional Assembly
Trentino-South Tyrol
Provincial Assembly
South Tyrol
Woelk The case of South Tyrol 19
Enactment Decrees - Hierarchy of Norms
⇒⇒⇒⇒ Negotiated legislative process - "by-passing" Parliament
JointCommittee
AutonomousProvince ST
Constitution
Decrees
EnactmentDecrees
Const.LawsAuton. Statutes
Ordinary LawLaws
Parliament
Regulations andadministrative acts
State Government
Woelk The case of South Tyrol 20
Group rights in South Tyrol
� Cultural autonomy
� Parity of languages
� Veto rights
� Proportional principle
Art. 2 Autonomy-Statute
In the region all citizens are granted equal rights,
regardless of the linguistic group to which they belong, and
their respective ethnic and cultural characteristics
are safeguarded.
http://www.consiglio-bz.org/downloads/Statuto_E.pdf
Woelk The case of South Tyrol 21
Ethnic quota-system
Basis: numerical strength
of language groups (census)
• representation for the allocation of public posts
• distribution of public funds and resources
culture, housing, ...
– generally not applied to private bodies
– exceptions: bodies of public interest and/or of public finance; privatized enterprises
proportional ...
• representation in the political sphere
– proportional electoral system
– composition of organs (incl. municipalities)
Woelk The case of South Tyrol 22
Minority Protection and Autonomy
• Functional dimension
• Participation, co-resonsibility
• Integration, interaction
Principle of territoriality
Multilevel governance
• Individual vs. Collective Rights
• "Tolerance established by law"
• Segregation, defensive character
Protection of persons
Sovereignty/security
"Mix" and balance of fundamental principles
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