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Principi di derivazione Comunitaria, applicazione immediata ex art. 1 legge n. 241/1990

Consiglio di Stato , sez. V, sentenza 19.06.2009 n° 4035

" Sulla base dei principi elaborati dalla Sezione e affermati anche nella sentenza impugnata, l'amministrazione è tenuta a privilegiare l'applicazione dei principi -di derivazione comunitaria e costantemente applicati dalla Corte di giustizia europea di concorrenza, di parità di trattamento, di trasparenza, di non discriminazione, di mutuo riconoscimento e proporzionalità.

Tali principi, anche in virtù dell'articolo 1 della legge n. 241 del 1990, non solo si applicano direttamente nel nostro ordinamento, ma debbono informare il comportamento dell'amministrazione, anche quando non è tenuta ad azionare formalmente la procedura dell'evidenza pubblica.

Infatti, il Consiglio di Stato ha ritenuto applicabili detti principi anche alle concessioni di beni pubblici, ponendo in rilievo che " la sottoposizione ai principi di evidenza trova il suo presupposto sufficiente nella circostanza che con la concessione di area demaniale si fornisce un'occasione di guadagno a soggetti operanti sul mercato, tale da imporre una procedura competitiva ispirata ai ricordati principi di trasparenza e non discriminazione"(decisione n. 168 del 2005, ma in via generale vedasi anche sez. VI, 15 febbraio 2002 n. 934)."

Consiglio di Stato

Sezione V

Sentenza 19 giugno 2009, n. 4035

Svolgimento del processo

1. Con provvedimento commissariale il SISRI di Lecce ha revocato alla società T. S.p.a. l'assegnazione del suolo di metri quadri 60.800 circa, situato nell'agglomerato industriale di Gallipoli.

La società D.L. Costruttori ha chiesto, con istanza del 16 aprile 2007, l'assegnazione del lotto, suo tempo assegnato alla T. S.p.a., dichiarandosi disponibile ad acquistare le opere realizzate dalla precedente assegnataria.

Il consorzio formulava le condizioni per l'assegnazione, ma la società D.L., con nota dell'8 maggio 2007, proponeva, senza espressamente rinunciare all'assegnazione del suolo, l'avvio di una procedura di finanza di progetto per la realizzazione di rustici industriali, chiedendo altresì espressamente, " alla luce di tale intenzione, la proroga temporale per ogni decisione, finalizzata all'inserimento del progetto nella Vs programmazione e all'elaborazione secondo il disposto dell'articolo 153 del decreto legislativo n. 163 2006, della ns proposta".

Il consorzio, con nota n. 1308 del 16 maggio 2007, ha comunicato all'impresa: "La proposta da voi formulata prevede realisticamente la possibilità di valorizzare i manufatti insistenti sull'area de qua prospettandone il pressoché totale utilizzo", precisando che, essendo la richiesta "subordinata, da parte di questo ente, alla concessione da voi invocata di una proroga temporale per ogni decisione, finalizzata all'inserimento del progetto della vostra programmazione e all'elaborazione secondo il disposto dell'articolo 153 del decreto legislativo n. 163 del 2006, per la nostra proposta, sono a chiedere in via preliminare a qualsiasi altro discorso la disponibilità da parte vostra a voler corrispondere per nostro nome e conto al precedente concessionario, la citata somma di Euro 197.932,12".

Con nota del 22 maggio 2007, la società D.L. ha accettato espressamente la richiesta di anticipazione della somma richiesta.

Con deliberazione n. 98 del 16 maggio 2007, il consorzio ha chiesto parere al proprio legale di fiducia in ordine alla proposta di finanza di progetto presentata dalla società D.L. e, con deliberazione n. 102 del 22 maggio 2007, il progetto, redatto dalla ditta D.L., veniva inserito dal consorzio SISRI medesimo nel proprio Programma triennale delle opere pubbliche.

2. Con nota 1576 del 14 giugno 2007, il consorzio ha comunicato alla società D.L. che "non si ritiene più interessato alla procedura di progetto di finanza, pur in presenza di un pregevole puntuale parere legale che ne ha illustrato gli aspetti positivi, in quanto è stata ritenuta favorevole per il consorzio e quindi meritevole di valutazione, la richiesta di assegnazione del suolo ex T.", presentata da altro soggetto.

Pertanto, il consorzio, con autorizzazione n. 159 del 14 giugno 2007, ha aderito alla proposta delle società D. Srl e M.C. S.n.c., che avevano offerto una maggiorazione in danaro del 20% sul prezzo di assegnazione, assegnando loro il lotto, con deliberazione n. 121 del 19 giugno 2007.

3. La società D.L. Costruttori ha, quindi, proposto ricorso innanzi al Tar Puglia per l'annullamento dei provvedimenti di assegnazione dei suoli alla società D. e M.C., espressamente prospettando il duplice interesse alla prosecuzione della procedura di finanza di progetto e in alternativa all'assegnazione dei suoli, cui asseriva di non aver mai rinunciato.

4. Durante la fase cautelare del giudizio, la società D.L., con nota del 24 luglio 2007, aveva presentato al consorzio, nell'eventualità dell' accoglimento dell'istanza cautelare, di essere ancora interessato all'opzione dell'assegnazione del lotto.

Il commissario straordinario del consorzio, con deliberazione n. 162 del 7 agosto 2007, dando esecuzione all'ordinanza del TAR n. 744 del 2007, ha deliberato nuovamente l'assegnazione in favore di D. e di M.C..

La società D.L. Costruttori ha proposto motivi aggiunti per l'annullamento anche di tale deliberazione.

5. Il TAR per la Puglia, con la sentenza ora impugnata, ha accolto il ricorso incidentale proposto dalle società D. e M.C., ha dichiarato l'improcedibilità per sopravvenuto difetto di interesse del ricorso originario e ha accolto il ricorso per motivi aggiunti.

6. Propongono ora appello le società D. Srl e M.C. S.n.c., deducendo un unico articolato motivo, che si sostanzia in ciò, che il consorzio era libero di assegnare ad altri il suolo e di valutare, nel contempo, la possibilità di avviare una procedura di finanza di progetto.

La società D.L. Costruttori ha presentato controricorso, con appello incidentale, deducendo l'erroneità della sentenza, laddove ha ritenuto illegittima la scelta della procedura di finanza di progetto e laddove ha rigettato la richiesta risarcitoria a titolo di responsabilità precontrattuale.

7. La causa è stata trattenuta in decisione all'udienza del 20 marzo 2009.

Motivi della decisione

1. L'appello principale non è fondato.

2.1 La fattispecie che viene all'esame del collegio diverge da quelle sulle quali si è formata la giurisprudenza giustamente seguita dal primo giudice e che ora si intende riaffermare.

Infatti, come si ricava agevolmente dalle circostanziate premesse in fatto, nel caso di specie quel che viene imputato all'amministrazione non è l'omessa pubblicità o il mancato avvio della procedura dell'evidenza pubblica per l'assegnazione del terreno in questione oppure la mancata preferenza del concessionario precedente a parità di condizioni (Cons. St. VI, 25 gennaio 2005 n. 168; V, 31 maggio 2007 n. 2825). Si tratta, invece, del caso in cui l'amministrazione, dopo aver portato avanti le trattative per l'assegnazione della consistenza patrimoniale, ha deciso, a fronte di un'offerta più conveniente, di emanare la concessione a favore dell' impresa appellante principale, senza darsi carico delle conseguenze che questo avrebbe comportato sulla situazione soggettiva dell'impresa appellante incidentale e sulla validità del provvedimento concessorio; sicché, viene in rilievo il comportamento dell'amministrazione nella sua duplice veste di contraente e di concedente.

2.2 La Sezione osserva che l'amministrazione, nella sua veste di contraente, non ha osservato la regola, valevole anche per i soggetti pubblici, di cui all'art. 1337 del codice civile -secondo cui il contraente si deve comportare secondo buona fede nello svolgimento delle trattative e nella formazione del contratto laddove ha interrotto la trattativa con l'appellante incidentale senza fornire nessuna giustificazione; sebbene vi sia la prova in atti che quest'ultima era disposta ad accettare le stesse condizioni dell'appellante principale. Sicché, vi è stata da parte dell'amministrazione la lesione dell'affidamento che l'impresa aveva riposto sulla conclusione della negoziazione a suo favore, che poi sarebbe culminato nella stesura del disciplinare integrativo dell'atto di concessione.

2.3 Tuttavia, nel caso di specie, il comportamento dell'amministrazione, laddove non ha tenuto il contegno proprio del buon contraente, ridonda anche sulla validità del provvedimento concessorio.

Infatti, sulla base dei principi elaborati dalla Sezione e affermati anche nella sentenza impugnata, l'amministrazione è tenuta a privilegiare l'applicazione dei principi -di derivazione comunitaria e costantemente applicati dalla Corte di giustizia europea di concorrenza, di parità di trattamento, di trasparenza, di non discriminazione, di mutuo riconoscimento e proporzionalità.

Tali principi, anche in virtù dell'articolo 1 della legge n. 241 del 1990, non solo si applicano direttamente nel nostro ordinamento, ma debbono informare il comportamento dell'amministrazione, anche quando non è tenuta ad azionare formalmente la procedura dell'evidenza pubblica.

Infatti, il Consiglio di Stato ha ritenuto applicabili detti principi anche alle concessioni di beni pubblici, ponendo in rilievo che " la sottoposizione ai principi di evidenza trova il suo presupposto sufficiente nella circostanza che con la concessione di area demaniale si fornisce un'occasione di guadagno a soggetti operanti sul mercato, tale da imporre una procedura competitiva ispirata ai ricordati principi di trasparenza e non discriminazione"(decisione n. 168 del 2005, ma in via generale vedasi anche sez. VI, 15 febbraio 2002 n. 934).

2.4 Venendo al ricorso principale proposto, risulta evidente, sulla base delle indicate premesse in fatto e della documentazione ivi passata in rassegna (e comunque presente in atti), che, al di là di quanto statuito dalla sezione in sede cautelare risulta che: nessuna procedura competitiva è stata compiuta; la deliberazione 7 agosto 2007 n. 162 del commissario straordinario non ha dato luogo ad alcuna procedura competitiva in contraddittorio fra i soggetti interessati all'assegnazione del lotto, essendosi limitata a fornire una motivazione ex post a determinazioni già a suo tempo adottate; nessuna valutazione è stata data all'interesse manifestato dall'impresa appellante incidentale alla nota nella quale manifestava la disponibilità ad offrire lo stesso prezzo offerto dalle odierne appellanti principali.

2.5 Va da sé che l'amministrazione aveva l'obbligo di avviare, a fronte di un'offerta per lei più vantaggiosa, una procedura competitiva, sia pure informale, per l'individuazione dell'affidatario acquirente.

3. In conclusione l'appello principale va rigettato e la sentenza va confermata.

4. Il rigetto dell'appello principale comporta l'improcedibilità dell'appello incidentale.

4.1 Infatti, nessuna prova consistente viene addotta per porre in dubbio quanto accertato dal primo giudice circa l'inidoneità del progetto presentato al fine di avviare il procedimento di cui all'articolo 153 del nuovo Codice sui contratti pubblici (decreto legislativo 12 aprile 2006, n. 163). Inoltre, tale alternativa diventa obbiettivamente impraticabile per l'amministrazione, laddove l'accoglimento dell'appello principale rende obbligatoria la prosecuzione del procedimento, sia pure su base competitiva, di assegnazione. Infine, l'alternativa diventa impraticabile a fronte di un'offerta di acquisto più vantaggiosa, anche rispetto alla finanza di progetto, da parte dell'impresa appellante principale.

Da tutto ciò discende l'improcedibilità dell'appello incidentale proposto.

4.2 Parimenti improcedibile diventa la domanda tesa ad ottenere il risarcimento del danno per responsabilità precontrattuale dell'amministrazione, che pure sussiste.

Infatti la caducazione del provvedimento di assegnazione a favore dell'appellante principale, cui segue l'obbligo per l'amministrazione di avviare il procedimento su basi competitive, costituisce per l'impresa una forma di risarcimento in forma specifica, ai sensi dell'articolo 2058 del codice civile, così come richiamato dall'articolo 7 della legge n. 205 del 2000. Infatti viene conservato integralmente il suo interesse pretensivo, costituito dalla possibilità di diventare assegnataria del bene.

5. Al rigetto dell'appello segue la condanna dell'appellante alle spese di giudizio, che si liquidano in cinquemila euro.

P.Q.M.

il Consiglio di Stato, in sede giurisdizionale, sezione quinta, definitivamente pronunciando, così provvede:

rigetta l'appello principale e per l'effetto conferma integralmente la sentenza impugnata;

dichiara improcedibile l'appello incidentale.

Condanna la società M.C. e D., in solido tra loro, al pagamento delle spese di giudizio, liquidate in cinquemila euro, a favore della società D.L. Costruzioni.

Così deciso in Roma, il 20 marzo 2009, nella camera di consiglio composta dai signori:

Presidente Raffaele Carboni

Consigliere G.Paolo Cirillo Est.

Consigliere Marzio Branca

Consigliere Nicola Russo

Consigliere Gabriele Carlotti

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