
di Aldo Scorrano e Francisco La Manna
In un periodo caotico come quello attuale, caratterizzato da una totale incertezza per il futuro in ambito politico ed economico, c’è bisogno di mantenere i piedi ben saldi per terra analizzando i fatti così come sono e non per quello che potrebbero essere, altrimenti si corre il rischio di alimentare false speranze, soprattutto se fondate su interpretazioni fuorvianti, che minano la sacrosanta dialettica critica attorno ad al dibattito. E quello intorno alla gestione della politica monetaria e fiscale è non solo un dibattito interessante, ma soprattutto dirimente. Proprio sul tema inerente la politica monetaria vogliamo porre l’accento con questa ulteriore analisi.
Ci riferiamo nello specifico al dibattito sulla moneta e più nel dettaglio alla controversa questione legata alla sovranità monetaria, che per gli scriventi è un argomento definitivamente esautorato, se riferito al nostro paese, poiché tale sovranità nel momento in cui si è aderito alla moneta unica è stata delegata ad autorità sovranazionali.
Ci preme fare una necessaria dichiarazione d’intenti preliminare, per fugare ogni dubbio: la nostra analisi non vuole caratterizzarsi come foriera di polemiche nei confronti chi sostiene il contrario, bensì vuole semplicemente riportare il dibattito in una dimensione realistica: da queste basi ripartire insieme per ricostruire un processo politico e per trovare soluzioni a questa “gabbia” giuridico-economica chiamata eurozona (con la speranza che si capisca che siamo tutti dalla stessa parte della barricata).
Per confutare dunque la tesi secondo cui la nostra nazione abbia ancora la cd. sovranità monetaria, partiamo da una serie di ipotesi che da qualche tempo circolano sulla rete: una tra tutte quella del giurista Paolo Maddalena, il quale in più riprese ha affermato che:
“L’ordinamento europeo concerne soltanto la disciplina privatistica dell’euro, cioè di una speciale forma di moneta, qual è la “banconota” (cioè la moneta emessa dalle banche private), che viene abilitata a circolare all’interno dell’Unione con valore legale. Ma ciò non investe il potere dei singoli Stati membri di creare anche essi moneta dal nulla: i cosiddetti “biglietti di Stato”. Ne consegue, come si accennava, che l’emissione di una moneta parallela, limitando il suo corso legale all’ambito nazionale, è perfettamente legittima. Lo confermano gli articoli 11 e 117 della Costituzione. Infatti l’articolo 117 Cost., se al primo comma parla del rispetto degli obblighi comunitari, al secondo comma afferma la potestà legislativa esclusiva dello Stato in tema di moneta e di finanza”.
Per cui leggiamo cosa riporta esattamente l’articolo (n° 117 Cost.) in questione:
<<La potestà legislativa è esercitata dallo Stato e dalle Regioni nel rispetto della Costituzione, nonché dei vincoli derivanti dall’ordinamento comunitario e dagli obblighi internazionali.
Lo Stato ha legislazione esclusiva nelle seguenti materie:
(…)
e) moneta, tutela del risparmio e mercati finanziari; tutela della concorrenza, sistema valutario; sistema tributario e contabile dello Stato; armonizzazione dei bilanci pubblici; perequazione delle risorse finanziarie;>>
Innanzitutto va precisato che al primo comma si fa riferimento alla potestà legislativa, cioè a quell’attività volta alla produzione di atti normativi primari, ossia alla produzione delle leggi costituenti l’ordinamento giuridico dello Stato che deve rispettare sia la Costituzione sia i vincoli dell’ordinamento comunitario sovraordinato.
Tornando all’affermazione di Maddalena, per quanto sensazionalistica, a nostro avviso si basa su una “forzata” interpretazione del dettame costituzionale, presumibilmente in buona fede, pur tuttavia non aderente a ciò che è il vero intendimento della norma. Se in esso, infatti, si sancisce la specifica esclusività della competenza dello Stato in diverse materie, tra cui quella riguardante la legislazione in tema di moneta, tale precetto è da intendersi come una competenza non certo assoluta e vediamo perché.
Precisiamo che l’articolo 117 Cost. è stato modificato dall’art. 3 Legge Costituzionale del 18 ottobre 2001- n° 3, recante “Modifiche al titolo V della parte seconda della Costituzione”, dando così piena attuazione all’art. 5 della Costituzione, che riconosce le autonomie locali quali enti esponenziali preesistenti alla formazione della Repubblica[1]. Premesso questo, possiamo meglio coerentizzare logicamente tutto il ragionamento in quella esatta cornice giuridica entro cui la potestà legislativa dello Stato si incardina.
A questo punto i dettami contenuti nel secondo comma dell’art. 117 Cost. assumono una prospettiva ben definita, per cui si può ragionevolmente affermare che la chiave di lettura della frase “Lo Stato ha legislazione esclusiva nelle seguenti materie” (quindi anche in materia di moneta) è da intendersi nel senso che lo Stato ha legislazione esclusiva rispetto alle Regioni pur nell’osservanza dei vincoli derivanti dall’ordinamento comunitario e dagli obblighi internazionali (art. 117 Cost., comma 1).
Detta in maniera ancora più semplice, all’interno del territorio nazionale tra Stato e Regioni la potestà legislativa in molti settori è di competenza esclusiva dello Stato, mentre nell’ambito dell’Unione Europea (nella misura dell’appartenenza del nostro paese all’Unione Monetaria Europea) tale potestà è comunque subordinata ai vincoli comunitari [2], con tutto ciò che questo fatto determina in tema anche di politica monetaria.
La norma costituzionale, pertanto, oltre a sancire una preminenza della Carta fondamentale sulla legislazione ordinaria, ne consacra anche quella degli obblighi internazionali, inclusi quelli di natura europea. Poiché, ai sensi dell’articolo 10 della Costituzione, la Repubblica si conforma al diritto internazionale generale, è da concludersi che l’articolo 117 della Costituzione faccia esplicito riferimento agli obblighi derivanti dai trattati internazionali.
D’altronde, come si può evincere anche da questo articolo “Legislazione esclusiva dello Stato sulla moneta”, non è solo un parere personale degli autori della presente analisi ritenere quanto sopra esposto una questione del tutto consolidata, fin dal momento in cui l’Italia ha aderito al Trattato di Maastricht.
Tutto quanto premesso nel pieno riconoscimento della complessa questione riguardante la c.d. teoria dei controlimiti, che nell’elaborazione della Consulta postula l’intangibilità dei principi supremi e dei diritti fondamentali dell’ordinamento costituzionale dello Stato, in quanto nucleo duro che ne plasma l’identità. Fatta questa preliminare ma necessaria disamina, possiamo confrontarla nel merito con la proposta di Paolo Maddalena.
Innanzitutto, facciamo un excursus giuridico al fine di comprendere come sia strutturato il sistema monetario, e di conseguenza a chi sia ascrivibile la cd. sovranità monetaria, se delegata come nel nostro caso.
Partiamo dall’art 1277 del codice civile che recita “I debiti pecuniari si estinguono con moneta avente corso legale nello Stato al tempo del pagamento e per il suo valore nominale”. Per l’Italia tale compito fu assolto dalla Lira fino all’entrata in vigore del Trattato di Maastricht (1999), con fine corso il 28 febbraio 2002, poi dall’Euro. Questo fatto, apparentemente scontato, ha implicato però un passaggio di sovranità monetaria: in brevità, le operazioni monetarie sono ora decise dal Consiglio direttivo della Banca Centrale Europea (BCE) e attuate dalle Banche Centrali Nazionali (BCN) sulla base delle istruzioni della stessa BCE.
Poiché la proposta di Maddalena (i biglietti di Stato emessi direttamente dal Tesoro/MEF), ripresa anche da altri “autori” in rete, fonda il suo punto di forza sul fatto che l’art. 128 TFUE faccia espresso riferimento alle “sole” banconote e non alla moneta in generale, cerchiamo di capire perché, in realtà, anche questa ipotesi sia da cassare.
Si riporta innanzitutto il testo dell’art. 128 TFUE:
<<1. La Banca centrale europea ha il diritto esclusivo di autorizzare l’emissione di banconote in euro all’interno dell’Unione. La Banca centrale europea e le banche centrali nazionali possono emettere banconote. Le banconote emesse dalla Banca centrale europea e dalle banche centrali nazionali costituiscono le uniche banconote aventi corso legale nell’Unione.
- Gli Stati membri possono coniare monete metalliche in euro con l’approvazione della Banca centrale europea per quanto riguarda il volume del conio. Il Consiglio, su proposta della Commissione e previa consultazione del Parlamento europeo e della Banca centrale europea, può adottare misure per armonizzare le denominazioni e le specificazioni tecniche di tutte le monete metalliche destinate alla circolazione, nella misura necessaria per agevolare la loro circolazione nell’Unione. >>[cfr qui]
Si presti ora attenzione ai passaggi successivi, perché la questione è incentrata proprio sulla presunta differenza che dovrebbero avere per la BCE, i termini banconote e biglietti di Stato (o statonote), espediente con cui si formula il presupposto per emettere la “nuova” moneta.
Ribadiamo qui un presupposto fondamentale, una sorta di conditio sine qua non: la moneta ha valore come mezzo di pagamento essenzialmente in quanto estingue le obbligazioni[3] che sono giuridicamente sottoposte alle leggi del paese che la adotta come moneta legale. Alla luce di ciò una “moneta parallela” – allargata al territorio nazionale (perché di questo si tratterebbe in sostanza) – così concepita dunque, non potrebbe aver alcun valore non essendo contemplata dai Trattati UE come mezzo di pagamento delle tasse all’interno dell’area definita dai paesi aderenti alla moneta unica, al cui interno tale ruolo liberatorio è deputato unicamente all’Euro. Del resto, anche la Banca Centrale Italiana si è espressa chiaramente al riguardo: “La Banca d’Italia precisa anzitutto che sulla base della normativa internazionale e nazionale, l’unica forma di moneta legale – ossia dotata del potere di estinguere le obbligazioni in denaro – è la moneta emessa dalla Banca Centrale Europea (BCE)”.
Restando sempre in tema di “Biglietti di Stato”, vale la pena ricordare che storicamente in Italia tale banconota, emessa su decreto del Ministero del Tesoro nel 1966, ha svolto la funzione di moneta divisionaria, dunque di piccolo taglio e di modesto impiego, insieme con le monete metalliche di taglio inferiore, fino al 1985, anno in cui ne è stata decretata la cessazione del corso legale. Per approfondire questi aspetti storici si suggerisce la lettura del testo “Le avventure della Lira”, di Carlo M. Cipolla.
Peraltro nel 1985 l’Italia non aveva ancora adottato l’Euro (Trattato di Maastricht) e non c’erano stati ancora il consolidamento del TCE (2002) e l’entrata in vigore del TFUE (2009). Pertanto, paragonare l’esperimento della “nuova moneta” al Biglietto di Stato emesso da Moro, è un’idea priva di consecutio storico-economica.
Andando avanti con l’analisi in merito all’art. 128 TFUE, è essenziale a questo punto fare riferimento a quanto indicato nel Regolamento (CE) N. 974/98 del Consiglio del 3 maggio 1998 relativo all’introduzione dell’euro, perché è assolutamente importante capire quanto segue: sia che si tratti di “banconote” sia che si tratti di “monete metalliche” ciò che fa fede è in definitiva l’unità di conto a cui si fa riferimento.
In tal senso ogni dubbio viene fugato da questi articoli del Regolamento di cui sopra:
Articolo 1 bis – Per ogni Stato membro partecipante, la data di adozione dell’euro, la data di sostituzione del denaro liquido e l’eventuale periodo di abbandono graduale sono stabiliti in allegato.
(Articolo 2) – Con effetto dalla rispettiva data di adozione dell’euro, la moneta degli Stati membri partecipanti è l’euro. L’unità monetaria è un euro. Un euro è diviso in cento cent.
(Articolo 3) – L’euro sostituisce, al tasso di conversione, la moneta di ciascuno Stato membro partecipante.
(Articolo 4) – L’euro è l’unità di conto della Banca centrale europea (BCE) e delle Banche centrali degli Stati membri partecipanti.[cfr qui]
Pertanto quando nel TFUE, all’art. 128 si citano banconote (comma 1) e monete (comma 2) si deve far riferimento a quanto sancito dal regolamento de quo (nel testo originale in inglese si usano espressamente i termini “currency unit” e “unit of account” per indicare l’unità di conto). Peraltro, c’è già un precedente storico, ossia un parere della Banca Centrale Europea del 24 gennaio 2002 su richiesta del Ministero dell’Economia francese riguardo due progetti di decreti, concernenti l’abrogazione dello status di moneta a corso legale di banconote e monete denominate in franchi francesi (CON/2002/6).
Inoltre, una recentissima sentenza della Corte di Giustizia Europea (Corte giustizia Unione Europea Grande Sez., 26-01-2021, n. 422/19 – Johannes Dietrich e altri c. Hessischer Rundfunk), in merito, tra l’altro, alle seguenti tematiche “Nozione di “corso legale” – Effetti – Obbligo di accettare banconote in euro – Regolamento (CE) n. 974/98 – Possibilità per gli Stati membri di prevedere limitazioni di pagamento in banconote e monete metalliche denominate in euro”, ha sancito quanto segue:
“Unione monetaria
La competenza inizialmente contemplata nell’articolo 109 L, paragrafo 4, del Trattato CE, poi nell’articolo 123, paragrafo 4, CE, e ormai sancita dall’articolo 133 TFUE, autorizza il solo legislatore dell’Unione a precisare il regime giuridico del corso legale riconosciuto alle banconote in euro dall’articolo 128, paragrafo 1, TFUE e dall’articolo 16, primo comma, terza frase del protocollo sul SEBC e sulla BCE, nonché del corso legale riconosciuto alle monete metalliche in euro dall’articolo 11 del regolamento n. 974/98, nella misura in cui ciò si rivela necessario per l’utilizzo dell’euro come moneta unica. (Cause riunite C-422/19 e C-423/19)”[cfr qui]
In conclusione, riteniamo che la proposta di Paolo Maddalena, per quanto lodevole nel tentativo di dare respiro al nostro sistema economico, sia basata su presupposti giuridicamente infondati come abbiamo cercato di spiegare.
Riepilogando, questa immissione di “biglietti di Stato” sotto la giurisdizione del MEF mantenendo la denominazione in Euro di fatto sarebbe vietata come precedentemente dimostrato. Se fossero immessi con altra denominazione, ad esempio “nuova Lira”, sarebbero in sostanza equiparati ad una moneta complementare allargata a tutto il territorio nazionale; anche in questo caso si riproporrebbero i problemi già descritti, primo fra tutti la loro impossibilità di essere utilizzati come strumento liberatorio (pagamento degli obblighi fiscali).
Vi è inoltre un precedente che conferma quanto sosteniamo: nel 2012, l’economista americano Mathew Forstater cercò di lanciare il “Nido” de L’Aquila, una moneta locale per ricostruire la città dopo il terremoto. Già all’epoca, infatti, si apprese che giuridicamente il Comune non poteva imporre una tassa denominata in “nidi”, poiché tale provvedimento sarebbe stato contrario ai Trattati europei; ed essendo dunque destinata a divenire perciò una moneta complementare tra privati, una moneta cioè di natura fiduciaria, non avrebbe risolto il problema di liquidità allora necessario.
Da notare, infine, che in tutt’Europa esistono già decine di monete complementari, come ad esempio in Francia, Germania, Svizzera e in Italia stessa. Per cui nulla di nuovo sotto il sole di Bruxelles. Esse hanno quasi tutte il pregio di risolvere i problemi legati alle giacenze di magazzino delle aziende, dando respiro al commercio nel breve periodo; trattandosi però di un circuito di credito commerciale dove le aziende (spesso consorziate) si fanno credito a vicenda mediante questa valuta digitale, non hanno la capacità e la forza necessarie a rilanciare anti-ciclicamente l’economia di un Paese. Se proprio si volesse trovare un rimedio provvisorio al disastro dell’Euro, occorrerebbe non sprecare il proprio tempo dietro scorciatoie inutili e magari ci si potrebbe occupare di progetti già esistenti ed alternativi: a mero titolo di esempio citiamo i CCF di Marco Cattaneo e Stefano Sylos Labini.
Concludiamo domandandoci se non sia più proficuo, da parte degli estensori di “certe proposte”, fare semplicemente informazione sulla natura ordoliberista e vessatoria dei Trattati europei, (così per esempio) piuttosto che imbarcarsi in veri e propri vicoli ciechi, dannosi per la Causa.
Note:
[1] La riforma del 2001 ha riguardato varie disposizioni del titolo V ma rispetto a quella in commento le modifiche sono state realmente incisive. Una rivoluzione si è avuta nella stessa formulazione della disposizione. Prima della riforma, infatti, essa indicava quali fossero le materie in cui le Regioni potevano legiferare, comunque nel rispetto sia dei principi di cui alla legge nazionale sia dell’interesse statale e delle altre Regioni. Ad oggi sono tassativamente indicate quelle di competenza esclusiva statale e concorrente mentre ognuna che non vi rientri spetta alla potestà regionale. Ciò indica un mutamento nella stessa prospettiva del legislatore. Con la riforma del 2001 il legislatore ha accomunato sotto i medesimi limiti tanto la potestà legislativa statale che quella regionale. Quest’ultima, però, è soggetta anche ad un vincolo di tipo geografico: ciascuna Regione, infatti, non può che legiferare per il proprio territorio. Entrambi Stato e Regione, invece, sono tenuti al rispetto tanto del diritto comunitario che di quello internazionale (sia pattizio che consuetudinario). Inoltre, si deve considerare come la costruzione della disposizione in esame vada ad modificare la stessa potestà legislativa (art. 72 ss. Cost.) in relazione al suo possibile contenuto.
[2] Tale questione emerge chiaramente anche in una sentenza della Corte Costituzionale, la 14/2004, nella parte in cui afferma “Dal punto di vista del diritto interno, la nozione di concorrenza non può non riflettere quella operante in ambito comunitario, che comprende interventi regolativi, la disciplina antitrust e misure destinate a promuovere un mercato aperto e in libera concorrenza. Quando l’art. 117, secondo comma, lettera e), affida alla potestà legislativa esclusiva statale la tutela della concorrenza, non intende certo limitarne la portata ad una sola delle sue declinazioni di significato. Al contrario, proprio l’aver accorpato, nel medesimo titolo di competenza, la moneta, la tutela del risparmio e dei mercati finanziari, il sistema valutario, i sistemi tributario e contabile dello Stato, la perequazione delle risorse finanziarie e, appunto, la tutela della concorrenza, rende palese che quest’ultima costituisce una delle leve della politica economica statale e pertanto non può essere intesa soltanto in senso statico, come garanzia di interventi di regolazione e ripristino di un equilibrio perduto, ma anche in quell’accezione dinamica, ben nota al diritto comunitario, che giustifica misure pubbliche volte a ridurre squilibri, a favorire le condizioni di un sufficiente sviluppo del mercato o ad instaurare assetti concorrenziali. Una volta riconosciuto che la nozione di tutela della concorrenza abbraccia nel loro complesso i rapporti concorrenziali sul mercato e non esclude interventi promozionali dello Stato, si deve tuttavia precisare che una dilatazione massima di tale competenza, che non presenta i caratteri di una materia di estensione certa, ma quelli di una funzione esercitabile sui più diversi oggetti, rischierebbe di vanificare lo schema di riparto dell’art. 117 Cost., che vede attribuite alla potestà legislativa residuale e concorrente delle Regioni materie la cui disciplina incide innegabilmente sullo sviluppo economico. Si tratta allora di stabilire fino a qual punto la riserva allo Stato della predetta competenza trasversale sia in sintonia con l’ampliamento delle attribuzioni regionali disposto dalla revisione del Titolo V. È il criterio sistematico che occorre utilizzare al fine di tracciare la linea di confine tra il principio autonomistico e quello della riserva allo Stato della tutela della concorrenza. In tale prospettiva, proprio l’inclusione di questa competenza statale nella lettera e) dell’art. 117, secondo comma, Cost., evidenzia l’intendimento del legislatore costituzionale del 2001 di unificare in capo allo Stato strumenti di politica economica che attengono allo sviluppo dell’intero Paese; strumenti che, in definitiva, esprimono un carattere unitario e, interpretati gli uni per mezzo degli altri, risultano tutti finalizzati ad equilibrare il volume di risorse finanziarie inserite nel circuito economico. L’intervento statale si giustifica, dunque, per la sua rilevanza macroeconomica: solo in tale quadro è mantenuta allo Stato la facoltà di adottare sia specifiche misure di rilevante entità, sia regimi di aiuto ammessi dall’ordinamento comunitario (fra i quali gli aiuti de minimis), purché siano in ogni caso idonei, quanto ad accessibilità a tutti gli operatori ed impatto complessivo, ad incidere sull’equilibrio economico generale. Appartengono, invece, alla competenza legislativa concorrente o residuale delle Regioni gli interventi sintonizzati sulla realtà produttiva regionale tali comunque da non creare ostacolo alla libera circolazione delle persone e delle cose fra le Regioni e da non limitare l’esercizio del diritto al lavoro in qualunque parte del territorio nazionale (art. 120, primo comma, Cost.). Non può essere trascurato che sullo sfondo degli aiuti pubblici alle imprese vi è la figura dell’imprenditore con le relative situazioni di libertà di iniziativa economica, che postulano eguali chances di accesso al mercato e, nell’ipotesi di aiuti pubblici, standard minimi di sostegno.” (Si veda qui)
[3] <<In un’economia in cui il debito dello Stato è uno degli attivi più importanti nei bilanci delle banche che emettono depositi, il fatto di dover pagare le tasse è ciò che da valore alla moneta di quell’economia (…) La necessità di pagare le tasse significa che le persone lavorano e producono allo scopo di acquisire ciò con cui poter pagare le tasse>> (H.P. Minsky, 1986)
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