the ilva case

8/20/2019 The Ilva Case

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2/13


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© Mic hael Fa ur

e

Pete r De Smedt a nd An Stas 2015

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El

gar

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Law subject co llection

DOl 10.4337/978 178347740 I

j

FSC

--

MIX

aper rom

rt po sl l• so

FS O C 13 56

ISBN 978 I 78347 739 5 cased)

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9 8

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ow


4/13

ontents

List

ojjigures

List

o

ables

List

o

contr

utors

List

o

abbreviations

Intr

od

uction

Mic/we/ Faw·e

Pet

er De

Sm

edt and

n Stas

PART 1 GENERAL THEOR Y

Enviro nmenta l enforcement networks: theory practice and

IX

X

XI

XIV

potent

ia l 13

Grant Pink

2 B

etter

regulation e

nf

orcement a

nd

networking:

eo-depende

ncy

for th

e globa.l

env

ironment 37

Campbe/1 Gemme/1

3 Connecting cultures: towa rds sustainable networking: key

success factors for environme

nt

al

cooperat

ion across cultu res 59

Esther Janssen

4 The role o f netwo

rk

s in ensuring

compl

iance

and

strengthening

coordi

nation: a co

mp

a ra tive analysis on 1

NECE

ECENA

RE

NA

and

REC

Turkey

68

Zerrin SavaJWI

5 Evaluating a nd assessi ng envir

on

mental enforcement networks:

through use of the

network

evaluation ma

tr

ix 1

05

Grant Pink and

lames

Lehane

PART

II BENEFITS OF NETWORKS

6 Towards a critical analysis of enviro nmenta l enforcement

networks 1

3

Jwnes Lehane

V


5/13

VI

Environmental e1

orcemem

net

wo

r

ks

7

Environment

al enfor

cement

netwo rks: their value proposi tion

dur

ing tim es of red ucing resources and budgets 153

Grant Pink

8 En

vironment

al regula tio n a nd e

nf

orcement

net

wo

rks

op

erati ng

in tandem: a very effective vehicle for

dr

iving eflici

enc

ies and

facil

itating know

ledge exchange

and

transfer 172

Campbelf Gemmelf and Tony Circelfi

9 Countering

tr

a nsnatio na l organized wildl ife crime: regional

and sub

-regional initi

at

ives, global responses

and the

need for

more effective

coor

dina

ti

on 87

Edward van Asclt

I0

Can

superv

ision

and en

for

cement

net

wo

rk

s make

self-regulation

wor

k? 223

J

V a

rtin de Bree, Han de Haas and Paul Meerman

PART Ill THEMATIC NETWORKS

Th

e Lusa ka Agreement T

as

k Force as a mechanism fo r

enforcement

against wildlife crime 239

Emmanuel B. Kasimbazi

2

H untington geogr

ap

hic enforceme

nt

/co

mpliance initia tive: a

case study in mu lti-organisation networ king

and

coll

abor

ation 263

Eugene Lubieniecki

13 The European

Un

ion

For

um of Judges for

the Environmen

t 276

Luc Lavrysen

4 T he Seaport Environmental Security Ne twork : facilitating

international enforcement collaboration to prevent illegal

haz

ardous

waste shipments t

hr

oug

h

ports

289

Danielle Fest Grabiel, Robert George Heiss,

A.feredith Koparova, Debomh Kopsick and Henk Ruessink

PART IV HORIZONTAL NETWORKS

15 North American

working

group on

environmenta

l

e nforcement a nd co mpliance

coo

perat

ion

: mov ing from

capaci ty building to oper

atio

nal activities

Deborah Kopsick and Susan Elizabeth Bromm

305


6/13

ConteJIIs vii

16 Informa l environmenta l networki

ng

: th e EPA Net

work

examp

le 321

William Fawcett

17 Deve l

oping

and sustai ning environmental comp liance and

enforcemen t

networ

ks: lessons learned fr

om

the Internationa l

Netw

o rk on E nviro

nmental Comp

lia nce and

Enforcement

334

Jo

Ge

rardu Meredith Koparova. Kenneth Markowit:

Dunvood

Za

e/ke and Gunnar Baldwin, Jr

18

Environmenta l inspections and

environmental

compliance

assurance networks in

the

con text

of

European Un io n

env ironment policy 350

Miroslav Angelo v and Liam Caslnnan

19 Success and fai

lur

e factors in developing effective

env iron

me

n ta l enforcement networks:

the

case

of

the East

A frica n

Network

for Environmenta l

Compliance

and

Enforcement

377

Gerphas Opondo

PART V VE RTICAL NETWORKS

2

Re

gional env

ir

o

nmental

e

nf

o

rc

eme

nt

netwo rks

in

th

e U nited

States 393

LeRoy Paddock

2 Ghana s efforts at

environmental

enforcement networks:

le

ga l

and inst ituti onal struc tures

41

9

Bem

ad

e

tt

e Araba

dj

ei and Larsey

i vf

ensah

22 Effective

netw

orking, formal versus s

ub

sta ntia l

comp

liance,

co

nflicting powers:

strengths

a

nd

weaknesses o f enviro

nm

enta l

criminal provisions enforcement netwo

rks

in Italy 430

Gra:ia Maria Vagliasindi

23

Domestic environme

nt

al enforcement netwo rks: the pract ice of

China 53

Xinyuan Lu

Hu

Qin and Jrm Yan g

24 E nviro

nment

al enfo rcement networking efforts in C hile:

lessons learnt and challenges

ahead 7

0

Juan Carlos Monckeberg Kay Bergamini and Cristian Perez


7/13

Environmental eJJ orcem

em

networks

25

En

fo rcement of envi

ronmenta

l legislat io n by

the

Belgian po lice 482

Frans Geysels

26 The Flemish

High Counc

il

of Environmental

Enforcement

the

ro

le

of

a n

environme

nta l

enforcement ne

t

work

in a new

coo

rdinated envi ro

nm

ental

enforcement

landscape within

the

Flemish region 2009- 2014 490

Afichae/ Faure and n

Stas

Concluding

and comparative remarks 5 0

i\fichael Faure n

Stas and

P

ete

r De

Smedt

h1dex

525


8/13

nforcemenrnerworks

in ra

ly 447

4. ENVIRONMENTAL MISCOMPLIANCE BY

CORPORATIO

NS

CAUSI

NG

ENVIRONMENTAL,

HEALTH

AND

ECONOMIC

HARM

:

THE

MI

SS IN

G

NETWORK'

AND

CONFLICTI

NG

POWERS

The

te nsion

between

a forma l '

compl

iance'

co

nce

pt

, such as

the one exem

plified in

the

prev

i

ous

section

,

and

a

substantial compliance

concept

,

such

as the o ne seen in

th

e

intense

contro l

and

inves tigative

and

enforceme

nt

activ

ities agai ns t environm

ental

crimes carried

ou

t by po lice fo rces, pros-

ecutors

and

judges,

might

create serious

ne

tworking '

cha ll

enges. A more

detail

ed

d i

sc

ussion of a case can illus

tr

ate the

point.

4.1

The

Ilva Case

The case in th is sense appears pa radigma

tic

(still under judgment), con-

ce

rn

ing

an

Italian

indu

str

ia l

co

mpan

y -

ll

va

S.p.a

.,

expo

r

ting

its

products

t

hr

oughout Europe

and

beyond - and particularly its industria l plant in

T

aranto

.

Apparently the

company

didn ' t comply (a mong

ot

h

er

th ings) with

environmental regulations (main ly

the

IPPC provisions),

causing

ser ious

envi

ronmenta

l

po

llut

ion

(mainly through

the

emissions of polluting

substances into the ai r) wh ich seems to have provok

ed

serious d amage

to human and an im al hea lth, as well

a.s

consequential damage

to other

economic ac tivities in

the

area.

29

On 26 September 20 13 , a press release announced

that

the European

Commission

is

taking action against

It

aly in an effort to reduce the environmental

im

pact of the Tlva steel plant in Taranto; while t he Commission sees recent com

mitments made by the Ita lian authorities to address the situa tion as a positive sign,

it is nevertheless ask ing lta ly to respect its o bliga tions under th e IPPC Directive

and the Environmental Liabi

li

ty Directive; more information is ava

il

able a t http://

europa.eu/rapid/press-release_

lP

- 13- 866_en.htm (accessed 10 October 20 13). On

the various problematic issues raised by the Ilva case, see Gianfranco Amendola,

'La magistra tura e

il

caso

ll

va. Prime ritlessioni ' (2012) Questione Giustizia,

No. 5, 9; Angelo Merlin, 'Caso

llva.lnquinamento

e salute: a lcu

ni

pr

ofili di rischio'

(

201

2) Ambiente Sicurezza, No .

20

, 44; Marina Zalin and Luciano Butti , 'Ca

so

Jlva. Idoneitfa c lcgittimi

tfa

delle nuove disposizio ni dopo la convcrsione del D.L.'

(20 13) Ambiente Sicurczza, No .

2,

80 ; Frances

co

Vigano, ' In questo numero'

(2013) Dirit to penale contemporaneo, No. I, I; Roberto Bin, 'L'IIva e il

so

lda to

Baldini' 20 13) Diritto penale contemporanea, No. I, 5; Alessandro Morelli, '

decreto Jlva: un

dram

ma ti

co

bilanciamento tra principi costituzionali ' (20 13)

D

iri

tto penale contemporanea, No. I,

7;

Angioletta Sperti, 'Aicune riflessioni sui

profili costituziona li del decreto llva ' (20 13) Diritto penale contemporanea , No. I,

12; Giuseppe Arconzo, '

Note

criticbe s

ui

decreto legge ad Ilvam , tra legislazione


9/13

448

Environmental 1 ~ o r c e m e m networ

ks

Th is resul ted in the managers a nd d

ir

ecto rs being a rrested and cha rg

ed

with several crim

es

: not only envi ronm

enta

l ones, but also c

rim

es rela ted

to

hea lth and safe ty in

the wo

rkpl

ace

as well as for

the

crime

se

t

ou

t u nder

Article 434 of the Criminal Code (the

so

-c

alled

'unnamed

disaster

, in th is

case

defin

ed

as

an

·enviro nme

nt

al di

sas

te r ) .

t

al

so

r

es

ul

ted

in the

pr

ecaut

io na ry

se

i

zure

of

seve

r

al

pro

duct

ive a r

eas

of the

industrial

plan t,

wh

i

ch

was issued p ursuan t to Article 321 of th e

Criminal Procedu re Code by the judge for th e prel imina ry inquiry.

T

he se

iz

ur

e or

de

r

ca

used a

se

r

io

us

eco

nomic t

hrea

t

to the co

m

pa

ny

and to the hu

nd

reds of its employees, as th e

se

i

zu

re jud ic ial decree h

ad

excluded the poss

ib

ility o f u

sing

the

concerne

d areas of the plant pend ing

the precautio nary seizure, therefore prec luding the possibili ty of cont inu

ing prod

uct

ive

ac

tivity;

it

h

as to

be r

eca ll

ed

that

a seco

nd

pr

ecau

t

io

nary

seizure was iss ued by the j udge of the preliminary inquiry , this time

conc

e

rn

ing

mat

eri

als

in stock as

they

were

cons

i

der

ed the

prod

uct of the

crim

es .

In order to fa ce the

econom

ic consequences o f the seizure and the strong

prot

e

sts

of

the

e

mploy

ee

s,

30

a

Law

D e

cre

e

was the

n ena

cte

d

by

the

G overnment , a nd la

ter

converted in to Law by the Parlia ment,3

1

intro

du

c

ing both general

an

d ad hoc pr

ovis

ions in order to a ll ow the

in

d ustria l

plant

to c

on

t

inue

operations

,

desp

i

te the

judici

ary

d

ec

ision to seize

the

plant a

nd

to s to p

produc

tion.

provvedimentale, riserva di funzione giurisdiziona le e dovere di repressione e

prcvcnzionc dei rcati' (20 13) Diritto pcnalc contcmporanco, No. I, 16; Domc

ni

co

Pulitano, ' Fra giustizia penale e gestio ne amrninist

ra

tiva:

riOes

sioni a margi

ne

del

caso ILVA'

(2013)

Diritto pcnalc contcmporanco, No. I, 44; Fabio Di Cristina ,

'Gli stabi limenti di interesse s tralegico nazionale e i poteri del Govern o'

(20 13)

G

io

rnale di diritto ammin

is

trativo 369; Marco Cuniberti, '11 D.

L.

s

ull

' ll

va

, tra

conni tti d i

at

t

ri

buzione e

du

bbi di legi

llimi ta

costituzionale' (

20

13) Amb

ie

nle

Sviluppo

205;

Franco Giampietro , '

II

va: da lla sentenza della Sovrana Corte

11 85/2013 al D.L. . 6112013' (2013) A

mbie

le Sv

iluppo 705; Ugo Salan it

ro

,

ll

decreto Ilva tra tu

te

la della salute e salvaguardia dell'occupazione: riflessioni a

margine de

ll

a sentenza de

ll

a Corte cos

ti

tuzionale'

(20 13)

Corr

iere giuridico I

041 ;

Marisa Meli, ' Ambiente, salute, lavoro:

il

caso Ilva' (20 13) Nuove leggi ci

vil

i

commenta te 10 17; G razia Maria Vagliasindi,

Eot

i collettivi e reati

am

bientali

tra rcspoosabi li ta penale c rcsponsabi litil socialc' in Bruno Monta ari (ed.), La

costruzione dell identita europea. Sicure

zz

a collettiva, liberta individuali e mode/li

di

regolazione

so

culle

(vol. I, T

or

ino: Giappiche

ll

i, 20 12), 367.

l l On these pro tests, see Nazareno Dinoi, 'l lva, scalta o sequestro e arresti,

8mila oper

ai

occupa o le vie d i Taranto' Corriere del e=zogiom o (26 Ju ly 20 12)

ava

il

ab le at http://

cor ri

eredelmezzogiorno.co

rri

ere.it (accessed I0 October 20 13) .

Law Decree

3

Decem be r

20 12,

No.

207,

converted (with amendments) into

Law

24

December 20 1

2 No

. 23 1.


10/13

nforcemenr nerworks in aly

449

Law Decree3 Decembcr 20 12,

n.

207, as

co

nverted into Law 24 December

20 12, No. 23 1, estab lishes in general that when a situation of econo

mic

crisis occurs

wit

hin a company

of national

strateg

ic

relevance with more

than two h undred employees (and therefore there being a compelling

need

to

safeg

uard occ

u

pat

io n a nd

production

),

32

the

Min

iste r fo r

the

Environm ent, while revising the

IPP

C permit, may

autho

rise

th

e

industr

ial

plants to continue their econom ic

act

ivities for 36 months , despite the

pre

ca

utionary se izure o rder even tually imposed by a judge. The Law Decr

ee

specifica

ll

y establishes that the

ll

va industrial plan t must be co nsidered of

strategic n

at

ional relevance, it puts Ilva back in possession

of the

seized

goods and it authorises

the

prose

cu

tion of i ts

pro

ducti

on

activiti

es

.

T hese provisio ns seemed to substa ntia lly nullify the effects of the judi

cia l precautionary seizures.

As a consequence of

the

enactmen t and conversion i

nto

Law of the

pre

vio usly ment

ioned

Law

Decree

, a conflict of powe rs challenge

was ra

ised

by the proceeding

prosecutor

agai nst the Government

and

Parl iament;

mo reover the involved Court for

the

re-

examination of

precautionary

measures and

the

judge for tbe prel

iminary

i

nqu

iry challenged the consti

tutional legitim

acy

of the Law Decree, as converted into Law.

The

Constitutio na l Cour t, ca

ll

ed on

to

decide o n bo

th

issues, did no t

ad mit the challenge

of

conflict of powers

33

or the constitut ional legitimacy

one;J.l the latter was also declared partly ungrounded . The Constitutiona l

Court decisions considered, among o

ther

profiles, the

eco

no mic

pr

o

te

c

tion

aims pursued

by

the Government

and

Par

l

iament.

After

th

e Constitu tional Court

decis

io ns, the same ju

dge

fo r the

preliminary

inquiry

ordered

the precaut iona ry seizure (final ised to the

confiscati

on

order of an equiva len t value) of 8 bill ion

euros

(the amo

unt

corre

sponding

to the estim a ted proceeds of the crimes attributed to

the man

agers

a nd

directo

rs of llva) belonging

to

a holding co

rp

o ration

of the Ilva company; at

the

time of

the

seizure th e

company

was managed

by the same persons

who

had managed Ilva at th e time o f the commission

of

th

e facts

con

t

ested

in the llva case.

This

seizure o

rder was

issued

pursuant

to

Legislative Decree 8

June

2001,

3

See Ugo Salanitro, dccrcto Ilva tra tutela della sa lute e sa lvaguardia

dcll 'occupazionc: riflcssio

ni

a marginc dclla scntcnza dclla Cortc costituzionalc'

20 13) Corriere giu ridico t041.

Corte Costituzionalc. ord. 13 February 2013, No. t6; Corte Costituziona le,

ord. 13 February 20 13, No. 17; the decisions are available a t www.pcnaleeontcm

poranco.it (14 February 2003) (acccssed 10 October

20

t3).

Cortc Costituzionalc, 9 May 2013, No. 85, ava ilable at www.pcnalccontcm

poranco .it

9

May

20

1

3)

(accesscd I0 October

20

13

).


11/13


12/13

Enforcemen ne works in Italy

451

institutions

,

the judiciary,

t

he company

and its emp loyees, t

he

civil society

(in

cluding media

) and

other

slakeholders.

The case involves the

enforcement

of many

relevant

legal provisions, in

a framework

where

t

he enforcement

of environmental legislation is strictly

linked

to

the enforcement ofother relevant specific provisions

(s

uch

as

those

on safety

in

workplaces)

as

well

as

of

general

substant

ia l

and

procedu

ral

crimina

l

provisions.

The case a l

so inv

olved the

constitutional rules on

dis

tributio n

of powe

r a

nd

,

moreover

, the

same fundamenta

l

concep

t

of separa

tion ofpowe

rs and the role

of the

ju

dic

iary in

the

area

of

crim in

al

law.

36

More

ove

r, the case shows the need to adequately take

into

consideration

the links

between

environment

al

protection and economic-occupational

in terests when enact ing and

enforcing

(among other

th

ings) envi ronmen

tal provisions,

as

both activities imp ly a deep reflection on

the ba

lance

between

environmental protection,

health

protection

an

d work

safety

protec

t

ion

,

as

well

as

a

stud

y

on

the

balance

between

the above-mentioned

facto rs and

economic

activities and competiti

on

.

Clearly,

dealing

with such a complex, multilevel and

articu

lated case

w

ou

ld require a high level

of

cooperation

and

inf

orma

l networking

among

a ll the interested part ies.

Looking

at

the facts, some significant gaps in networking have occurred,

reaching the level of a

connict

of powers challenge, probably

as

a conse

quence

of

(am

ong othe

r issues) the above-mentioned different

approaches

to the issue of envir

onme

ntal compliance.

These gaps in networking contributed to generating relevant conse

quences: the increased time needed

to

solve the connict; the emergency

(and indeed not thought through

enough)

intr

oduction of provisions

which potentia lly apply

to

future similar

crit

i al situations; the adoption

of

judicial decisions which, with the aims of overcoming the legislative

intervention

and

the Constitutional

Court

decisions, might be interpreted

as partia

ll

y f

orc

ing

if

not the letter at least the rat ionale

of

some normative

provisions,

as

well

as

violating some fundamenta l principles of punitive

Jaw. All these elements do not seem

to

produce positive effects on the

ultimate goal

of

the protection

of

the environment

and

of the other related

interests,

as

well as.

in

a

more

general perspective, on the fundamenta l

principles

of

crimina l Jaw

and

on the same concept

of

separation

of

powers.

' On the latter proliles. sec for instance Domenieo Pulitano. 'Fra gi ustizia

penale e gestione amministrativa: rinession i a margine del

caso

ILVA (2013)

Oiritto penale contemporaneo ,

No.

I, 44; Francesco Vigano, In questo numero'

(2013)

Diritto

penale con temporaneo,

No.

I, I .


13/13

452 nvironmemal enforcement net r s

5. CONCLU

I

NG REMARKS

The analysis

co

nduct

ed

so far demonstrates tha t, despite a

certa

in

in

dif

ference towards

environmenta

l cri

minal

provisions

en

f

or

c

emen

t net

works

from a

co

n

cept

ual a nd

theor

etical perspective, in Italy th ere do exist

relevant examples o f effectiveness

in

net

wo

rking formal and info rm al, at

the

public level, at

the

civil society level

an

d at a mixed p ublic-civil society

level) for the enforcement o f enviro nmenta l criminal

prov

isio ns.

Al

so

, the concep tual importance and practical benefits of netwo rks in

the

specific

fie

ld o f the fight agai

nst

organised

env

ir

onmental

crime was

demonstr

ated .

The stru ct

ur

e, tasks a nd achievement of these netwo rk s depose in the

sense that

the

latter are potent ally effective

models

o f enviro

nm

enta l

enforcement networks.

Nevertheless, these pos iti

ve

examples sti

ll

coexist with

so

me relevant

gaps to be

fi ll

ed when it

co

mes to substant ial

co

mp lia nce, as we

ll

as to

cooperat

ion between powers and authorities wh ich are involved in envi

ronmenta.l enforcemen t T hese pro files migh t con tribu te to creating cha

l-

lenges to environ mental

co

mpliance and enforcement , th er

efore

negatively

affecting

the environmental protection goals ac hievement

and

rela ted

relevan t economic interests and resulting in a substantial breach of the

sa me

funda

menta l

pr

inciple

of

sustainable deve lop

me

nt

as

we

ll

as of

the

relevan t fundamen tal principles of criminal law.

Th is co nclusion ca

ll

s for t he need to foster informa l network ing between

pub lic au

tho

rities

as

well

as

between public authorities and

co

r

pora

t

ions

a nd stakeho lde rs fo r environmental compliance a nd enfo rcement.

Moreover, th e need to adequa tely take into consideration the links

between envi ro nmental protection a nd econom ic-occupational interests

sh

ou

ld not be neglected in the future devel

opment

of environmenta l leg

islation and the related

fo

rma l and info rmal complia nce and enforcement

networks.

Th is seems necessary

to

make f

ur

ther progress in ens

ur

ing a more

effec

ti

ve a

pp

lica tion

of

en

vi

ro

nm

enta l legisla t

io

n, also

thr

ough

a n

etwo

rk

cu lture which can contribute to reaching a greater consistency of approach

in the implement

at

io n, application and enforcem

ent

of environmenta l

legislatio n.

the ilva case

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