Il sistema della corruzione in Italia, di Piercamillo Davigo

By | marzo 9, 2017

Il sistema della corruzione in Italia, di Piercamillo Davigo

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Il portavoce Nicola Morra ha intervistato il Presidente dell’associazione nazionale magistrati Piercamillo Davigo che ci ha raccontato come funziona il sistema della corruzione in Italia. Un approfondimento da leggere e far conoscere a quante più persone possibili. Buona lettura!

Nicola Morra: Lei ha scritto un libro dal titolo: Il sistema della corruzione. Secondo lei come si può intervenire per evitare queste disfunzionalità del sistema.

Piercamillo Davigo: La corruzione presenta alcune caratteristiche fondamentali. Primo: è seriale, cioè chi commette questi reati non li commette una volta soltanto ma li commette tutte le volte che ne ha occasione e con ragionevole certezza di impunità. Quindi vuol dire sempre, in Italia. Secondo: è diffusiva, o contagiosa, nel senso che chi è dentro queste pratiche cerca di coinvolgere altri soggetti per creare un ambiente favorevole. Questo si ramifica fino a quando sono “quelli per bene” a doversene andare perché sono in pericolo per colpa di “quelli per male”.
La corruzione poi dà vita a sistemi criminali perché da un lato dà vita a mercati illegali, che sono quelli in cui non c’è tutela giuridica, come per esempio la vendita di droga, la prostituzione, il traffico di esseri umani, il traffico di armi e così via. Io non posso, se vendo la cocaina e non me la pagano, andare dal giudice e farmi fare un decreto ingiuntivo, perché finisco in galera.
Il mercato illegale normalmente è autoregolamentato, cioè chi non rispetta le regole viene escluso dal mercato. Ma questo funziona solo fino a quando il mercato ha dimensioni tali per cui tutti si conoscono, quanto meno indirettamente o per fama. Quando il mercato illegale è troppo ampio questo sistema di autoregolamentazione non funziona più, per cui interviene a regolarlo qualche soggetto esterno, di solito il crimine organizzato. Un imprenditore mi disse di aver pagato tangenti in Lombardia e in Sicilia, dove le cose vanno nello stesso modo, ma in Sicilia c’è più disciplina, perché c’era Cosa nostra che regolamentava il meccanismo del mercato illegale.
Cosa bisogna fare per fronteggiare un sistema criminale? Usare i meccanismi che si usano per fronteggiare i sistemi criminali. Non far finta che siano casi isolati di uno che una volta per distrazione ha preso una mazzetta, ma trattarli da quello che sono: sistemi criminali. Primo: una premialità molto forte. Normativa sulla protezione e l’assistenza ai testimoni di giustizia; normativa sulla protezione e la riduzione di pena, secondo me, fino all’impunità per i collaboratori di giustizia. Tra l’altro chi in questa materia parla per davvero, cioè dice tutto quello che sa, diventa inidoneo a commettere questi reati, perché se un funzionario pubblico che ha preso tangenti racconta quello che ha fatto, facendo l’elenco di quelli che ha pagato, non troverà nessuno disposto a pagarlo. Allo stesso modo un imprenditore quando viene scoperto per pagare tangenti elenca tutti i funzionari pubblici che ha pagato, non troverà più nessun funzionario pubblico disposto a ricevere denaro da lui. Quindi diventa inidoneo, è già rieducato, per forza.
La seconda cosa sono per me le operazioni sotto copertura, per esempio gli appalti sono per lo più risultati condizionati pesantemente da cartelli di imprese che si accordavano tra di loro per dividerseli. Allora tutta la normativa stringente sugli appalti non serve a niente, perché dà fastidio alle imprese per bene e non fa niente alle imprese “per male” che si mettono d’accordo. Come si sgretolano questi cartelli se non potendo mandare ufficiali di polizia giudiziaria direttamente o tramite persone interposte a fingersi imprenditori che partecipano a una gara per scoprire che ci sono questi cartelli, per esempio?

Morra: Come si può combattere il familismo amorale nella pubblica amministrazione?

Davigo: Il familismo amorale è quando qualcuno antepone gli interessi della propria famiglia, non necessariamente quella politica, di solito quella naturale: figli, nipoti, cugini, parenti, agli interessi generali. La Costituzione prevede che i dipendenti pubblici siano assunti, di regola, mediante concorso. Il problema è che in Italia di solito i dipendenti pubblici non sono affatto assunti mediante concorso. Vengono assunti in modi vari: per chiamata, precariato, etc. questo ha come prima conseguenza che normalmente non sono fedeli alla Repubblica ma al padrino politico che li ha messi lì. Questo è il primo dato. Il secondo dato è che non hanno il più delle volte un senso di appartenenza all’amministrazione di cui fanno parte, che deriva da professionalità elevata, dal senso e dall’orgoglio di essere stati scelti perché bravi. Perché se quel che conta è il rapporto di fedeltà personale, e non la capacità professionale, viene meno anche questo. In altri paesi, per esempio la Francia, con la sua amministrazione, o in Gran Bretagna, questo orgoglio di appartenenza c’è. Ed è anche normale che queste amministrazioni siano un ostacolo serio a eventuali tentativi di devianza da parte degli organi sovraordinati, di solito quelli politici, quando ordinano cose illegali si rifiutano di farle. Da noi se uno si rifiuta di farle passa dei guari, nella migliore delle ipotesi non lo promuovono.

Morra: Cosa si può fare affinché non vi sia un contributo agli indagati di notizie sulle indagini in corso.

Davigo: Per evitare inquinamenti di prove ci sono due esigenze del tutto diverse. La prima, quella di unificare le fattispecie: meno reati ci sono, come fattispecie astratte, meglio è. Poi c’è la tutela delle indagini perché il segreto che in Italia viene sempre invocato a sproposito, a tutela della reputazione, dimenticandosi che il segreto non serve a tutelare la reputazione, il segreto serve a tutelare le indagini. La reputazione è tutelata dalle norme sulla diffamazione. Se io scrivo una roba falsa ne rispondo. Se io scrivo una roba vera no. E quindi non si può dire: sono un ladro ma non si deve sapere, per esempio. Anche se abitualmente viene utilizzato questo sistema. Allora se un funzionario pubblico rivela segreti d’ufficio commette un reato grave. L’ipotesi aggravata è punita fino a 5 anni di reclusione. Se i informo qualcuno delle indagini, determinando un aiuto a sottrarsi alle investigazioni delle autorità, è favoreggiamento personale. Per esempio le intercettazioni sono uno strumento delicatissimo Le intercettazioni sono uno strumento delicatissimo, non soltanto perché se uno sa che è intercettato può togliere per esempio le microspie, ma c’è un’ipotesi molto più grave: se uno sa che è intercettato può parlare in modo a sé più favorevole, inquinando le prove già acquisite prima.

Morra:Il sistema politico ha agevolato il lavoro della magistratura oppure nel tempo, per esempio da Mani Pulite e quindi negli ultimi 25 anni, le ha ostacolate?

Davigo:Negli ultimi 25 anni la classe politica, per quanto riguarda in particolare le indagini e i processi in tema di corruzione si è data molto da fare, non per stroncare la corruzione ma per stroncare le indagini e i processi, facendo leggi che impedivano le indagini e azzeravano le prove acquisite e creavano enormi difficoltà. Con una certa differenza fra centro destra e centro sinistra. Il centro destra ne ha fatte così grosse e così male che di solito non hanno funzionato, o sono state dichiarate incostituzionali o comunque ne è stata data una interpretazione che consentiva di limitarne i danni. Mentre il centro sinistra le ha fatte molto mirate, ottenendo risultati.
Per quanto riguarda poi l’andamento generale della giustizia, non sono state fatte riforme che la rendano più efficiente, sono state fatte riforme che di solito non hanno inciso per niente, qualche volta peggiorative.

Morra: Come si potrebbe rendere la giustizia effettiva e non semplicemente teorica

Davigo: Sono tre le cose da fare oltre agli aggiustamenti tecnici del codice di procedura penale, che oggi è scritto apposta per non farlo funzionare. La prima è quella di ridurre drasticamente il numero dei procedimenti di primo grado, attraverso una ampia depenalizzazione, e incentivando più seriamente i riti alternativi. Il secondo tipo di intervento riguarda le impugnazioni. In Italia abbiamo un numero sterminato di appelli che altrove è sconosciuto. La Corte di Appello se appellante è solo l’imputato non gli può aumentare la pena, quindi tutti fanno appelli perché tanto non rischiano nulla. In Francia non è così, e solo il 40% delle sentenze condanna di pena da eseguire viene appellato, perché uno fa appello e prende di più, quindi ci pensa prima di fare appello. Di regola accade che quando qualcuno viene accusato di qualcosa, se ricopre un importante incarico, di solito elettivo o di nomina politica, (perché per gli impiegati pubblici il discorso in parte è diverso: se finiscono nei guai di norma vengono sospesi) si dice aspettiamo le sentenze.
Aspettare le sentenze significa rimettere all’autorità giudiziaria decisioni squisitamente politiche, perché decidere la carriera giudiziaria di un uomo politico, in un senso o nell’altro, sia nel senso della condanna che nel senso della assoluzione, carica il processo di tensioni che altrimenti non ci sarebbero.
Se noi processassimo degli ex, già allontanati dai posti di responsabilità dai loro pari, tutto quel che accade nei processi avrebbe un interesse storico, e non un interesse politico immediato. Si dice: ma noi non sappiamo esattamente come sono andate le cose, e a volte davvero non si sa. Ma faccio alcuni esempi di quando si sa benissimo come sono andate le cose, e non si interviene. A Milano nel 2000 o nel 2001 venne arrestato in flagranza un consigliere comunale mentre chiedeva 360 milioni di lire, l’equivalente di 180 mila euro, a un imprenditore per permettergli l’apertura di un centro commerciale. La richiesta era video registrata. Quindi non c’era dubbio su ciò che avesse fatto. Si può discutere nel processo su che tipo di reato sia. Ma dal punto di vista dell’opportunità politica dovrebbe già essere sufficiente. Comunque questo fu tratto a giudizio con rito direttissimo condannato a due anni di reclusione per tentata concussione. L’indomani il prefetto scrisse al consiglio provinciale dicendo lo dovete sospendere, perché secondo la legge vigente all’epoca, gli amministratori locali che riportano condanne non inferiori a 2 anni per reati contro la pubblica amministrazione dovevano essere sospesi. Il consiglio provinciale di Milano ha respinto la richiesta di sospensione con questa argomentazione che io trovo divertente. Dicendo “secondo noi la sospensione è obbligatoria solo per i reati consumati ma nel suo caso la concussione era solo tentata”. Ricordo di aver commentato in una intervista: siccome non ce l’ha fatta a prendere i solidi, gli danno un’altra chance.
È difficile spiegarsi per quale ragione cambiando i governi e le amministrazioni, non sembra esserci un atteggiamento di fermezza di fronte alla lotta alla corruzione, ma la stessa cosa accade pari pari nei confronti dell’evasione fiscale. Più o meno tutti i governi che si succedono annunciano una dura lotta all’evasione fiscale cominciando con un condono. Quindi, perdonando intanto gli evasori, che non mi sembra un bel modo di fare la lotta all’evasione fiscale. Probabilmente la spiegazione sta nel fatto che, se si affronta la corruzione così come se si affronta l’evasione fiscale, si tutelano tutti i cittadini. Ai quali però non importa granché, perché non hanno un immediato beneficio ma ce l’avranno a lunga distanza. Mentre quelli che subiscono le conseguenze, cioè gli evasori che devono pagare le imposte, o i tangentisti che non riescono più a diventare ricchi, farebbero pesare tutta la loro forza che di solito è notevole, perché hanno importanti mezzi finanziari e importanti relazioni per impedirlo.
Poi c’è una spiegazione deteriore, che non è la mia ma è di Giuliano Ferrara, che io trovo agghiacciante. In un dibattito su Micromega il moderatore Paolo Flores D’Arcais ha chiesto a Giuliano Ferrara, ricordando quel che si diceva di Andreotti, ma è vero che per fare politica bisogna avere capacità di ricatto? E Ferrara rispose: no, per fare politica bisogna essere ricattabili, così si è disposti a fare fronte comune. A me sembra la logica di una organizzazione mafiosa.

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