The cooperation contract is a legal type common to the three European directives on concessions (art. 17, para 4, dir. 2014/23/EU), procurement in the public sector (art. 12, para 4, dir. 2014/24/EU) and utilities (art. 28, para 4, dir. 2014/25/EU), which never introduced before, but established by the case law. Essentially, such contract is aimed to the cooperation in the public services in common through the sharing of activities exposed to the open maket, and configures, at a formal level, (i) an arrangement concluded exclusively between public bodies, (ii) exempt from the obligation to follow the competitive procedures. The research focalizes both the characteristics of the legal type and aims a twofold objective: on the one hand -structurally-, criticizing the adequacy of the concept of public agreement in order to qualify the nature of that contract, and on the other hand -functionally-, extending the scope of that exemption beyond the classic freedom of cooperation and organization of public services in aggregate form, provided by art. 2, para 1, second sentence, dir. 2014/23/EU). This entails the following two questions: whether the cooperation contract resolves essentially in the codification of European law in the context of a purely internal situation (the cooperation agreement) and, if not, this type of contract involves the exemption from the obligation to follow the competitive procedures of a situation that in any case does not fall within the scope of the fundamental freedoms (as an instrument of in house providing in a broad sense). To this purpose, I will delve into the jurisprudential origins of the present legal type, in such a way to reconstruct the logical and chronological path which leads to differentiate such a cooperation contract from the public-public partnership, from the in-house contract and, finally, from the cooperation agreement, by means of the comparison with the legal types of inter-administrative arrangement provided by the domestic law, which the European law takes into account without a full harmonization. In the light of this analysis, I will seek to point out the codified notion of cooperation contract represents the evolved version of the collaboration agreement, with which are exempted public contracts and concessions relating to economic activities exposed to the open market, aimed to the provision of public services and exchanged in cooperation within the public sector. At the core of this interpretation is the provision, introduced in innovative way than the previous case law, that allows the performance in cooperation of activities exposed to the open market, as provided in subparagraph c) of the cited articles. Furthermore, with regard to structure yet, it will observe that the cooperation contract does not overlap or interfere with the in house providing in a narrow sense, even if this kind of contract is inserted in the same statutory package. Turning to the scope of the exemption from the functional point of view, it should be noted that as part of the contractual cooperation was allowed, in the recitals of the 2014 EU directives, the integration between public bodies to carry out complementary activities. In summary, I want to argue that the cooperation contract is formally an inter-administrative arrangement and essentially a public contract as, structurally, may relate to activities ancillary to the public service, and does not imply any in house relationship, and to demonstrate that, functionally, the exemption of that contract goes beyond simple service aggregation and is extended to cases where there is the sharing of performance by carrying out complementary activities.

Il contratto di cooperazione è un istituto introdotto per la prima volta nel codice dei contratti pubblici, all’art. 5, comma 6, D.Lgs. n. 50/2016, in attuazione delle direttive europee sui contratti pubblici di quarta generazione. In particolare, tale tipo di contratto è finalizzato alla cooperazione nei servizi pubblici in comune attraverso la condivisione di attività esposte al mercato aperto, e si presenta come una fattispecie comune alle tre direttive europee in materia di concessioni (art. 17, par. 4, dir. 2014/23/UE), appalti pubblici nei settori ordinari (art. 12, par. 4, dir. 2014/24/UE) e nelle “utilities” (art. 28, par. 4, dir. 2014/25/UE), che hanno codificato la fattispecie elaborata dalla Corte di Giustizia dell’Unione Europea. Essenzialmente, tale cooperazione per via consensuale si configura, sul piano formale, sotto forma di (i) convenzione pubblicistica conclusa esclusivamente tra enti pubblici, (ii) esente dall’obbligo di gara. La ricerca si concentra su entrambe le caratteristiche di tale tipo di contratto e persegue un duplice obiettivo: da un lato criticare, sul piano strutturale, l’adeguatezza della nozione di accordo amministrativo ai fini della qualificazione della natura di tale contratto, e dall’altro lato estendere, sul piano funzionale, la portata dell’esenzione oltre la classica libertà di cooperare e di organizzare i servizi pubblici in forma aggregata, sancita dall’art. 2, par. 1, secondo periodo, dir. 2014/23/UE. Ciò implica le seguenti due questioni: se il contratto di cooperazione si risolve in sostanza nella codificazione nell’ambito del diritto europeo di una situazione meramente interna (l’accordo di collaborazione) e, se in caso contrario, tale tipo di contratto comporta l’esenzione dall’obbligo di gara di una fattispecie che comunque non ricade nell’ambito di applicazione dalle libertà fondamentali (in quanto strumento di autoproduzione in senso lato). A tale fine, prenderò in esame le origini giurisprudenziali della fattispecie, in modo da ricostruire il percorso logico e cronologico che ha portato a differenziare tale contratto di cooperazione dal partenariato pubblico-pubblico, dai contratti in house e, infine, dall’accordo di collaborazione, attraverso il confronto con le fattispecie previste dal diritto nazionale di accordo inter-amministrativo, che il diritto europeo prende sì in considerazione, ma senza armonizzarle. Alla luce di questa analisi, si cercherà di mettere in evidenza che la nozione codificata di contratto di cooperazione rappresenta la versione evoluta dell’accordo di collaborazione, con la quale sono esentati appalti pubblici e concessioni aventi ad oggetto attività economiche esposte al mercato aperto, finalizzate all’erogazione di servizi pubblici e scambiate in regime cooperazione pubblica. Al centro di tale interpretazione sta la previsione, introdotta in modo innovativo rispetto alla precedente giurisprudenza, che ammette lo svolgimento di attività esposta al mercato aperto, come previsto alla lettera c) dell'articolo citato. In sintesi, intendo sostenere che il contratto di cooperazione è formalmente un accordo inter-amministrativo e sostanzialmente un contratto pubblico quando, sotto il profilo strutturale, può riguardare attività accessorie al servizio pubblico, e non comporta alcun rapporto in house, nonché dimostrare che, sotto il profilo funzionale, l’esenzione di tale contratto va oltre la semplice aggregazione dei servizi ed è estesa ai casi in cui si verifica la condivisione delle risorse e delle prestazioni attraverso lo svolgimento di attività complementari.

(2017). Il contratto di cooperazione nel codice dei contratti pubblici. (Tesi di dottorato, Università degli Studi di Milano-Bicocca, 2017).

Il contratto di cooperazione nel codice dei contratti pubblici

GIRGENTI, ALFIO LIVIO
2017

Abstract

The cooperation contract is a legal type common to the three European directives on concessions (art. 17, para 4, dir. 2014/23/EU), procurement in the public sector (art. 12, para 4, dir. 2014/24/EU) and utilities (art. 28, para 4, dir. 2014/25/EU), which never introduced before, but established by the case law. Essentially, such contract is aimed to the cooperation in the public services in common through the sharing of activities exposed to the open maket, and configures, at a formal level, (i) an arrangement concluded exclusively between public bodies, (ii) exempt from the obligation to follow the competitive procedures. The research focalizes both the characteristics of the legal type and aims a twofold objective: on the one hand -structurally-, criticizing the adequacy of the concept of public agreement in order to qualify the nature of that contract, and on the other hand -functionally-, extending the scope of that exemption beyond the classic freedom of cooperation and organization of public services in aggregate form, provided by art. 2, para 1, second sentence, dir. 2014/23/EU). This entails the following two questions: whether the cooperation contract resolves essentially in the codification of European law in the context of a purely internal situation (the cooperation agreement) and, if not, this type of contract involves the exemption from the obligation to follow the competitive procedures of a situation that in any case does not fall within the scope of the fundamental freedoms (as an instrument of in house providing in a broad sense). To this purpose, I will delve into the jurisprudential origins of the present legal type, in such a way to reconstruct the logical and chronological path which leads to differentiate such a cooperation contract from the public-public partnership, from the in-house contract and, finally, from the cooperation agreement, by means of the comparison with the legal types of inter-administrative arrangement provided by the domestic law, which the European law takes into account without a full harmonization. In the light of this analysis, I will seek to point out the codified notion of cooperation contract represents the evolved version of the collaboration agreement, with which are exempted public contracts and concessions relating to economic activities exposed to the open market, aimed to the provision of public services and exchanged in cooperation within the public sector. At the core of this interpretation is the provision, introduced in innovative way than the previous case law, that allows the performance in cooperation of activities exposed to the open market, as provided in subparagraph c) of the cited articles. Furthermore, with regard to structure yet, it will observe that the cooperation contract does not overlap or interfere with the in house providing in a narrow sense, even if this kind of contract is inserted in the same statutory package. Turning to the scope of the exemption from the functional point of view, it should be noted that as part of the contractual cooperation was allowed, in the recitals of the 2014 EU directives, the integration between public bodies to carry out complementary activities. In summary, I want to argue that the cooperation contract is formally an inter-administrative arrangement and essentially a public contract as, structurally, may relate to activities ancillary to the public service, and does not imply any in house relationship, and to demonstrate that, functionally, the exemption of that contract goes beyond simple service aggregation and is extended to cases where there is the sharing of performance by carrying out complementary activities.
RAMAJOLI, MARGHERITA
DELSIGNORE, MONICA
contratti; tra; pubbliche; amministrazioni,; esenzione
contract; between; public; authorities,; esenzione
IUS/17 - DIRITTO PENALE
Italian
27-mar-2017
SCIENZE GIURIDICHE - 84R
29
2015/2016
open
(2017). Il contratto di cooperazione nel codice dei contratti pubblici. (Tesi di dottorato, Università degli Studi di Milano-Bicocca, 2017).
File in questo prodotto:
File Dimensione Formato  
phd_unimib_787953.pdf

accesso aperto

Descrizione: tesi di dottorato
Tipologia di allegato: Doctoral thesis
Dimensione 3.37 MB
Formato Adobe PDF
3.37 MB Adobe PDF Visualizza/Apri

I documenti in IRIS sono protetti da copyright e tutti i diritti sono riservati, salvo diversa indicazione.

Utilizza questo identificativo per citare o creare un link a questo documento: https://hdl.handle.net/10281/152404
Citazioni
  • Scopus ND
  • ???jsp.display-item.citation.isi??? ND
Social impact