{"id":1804,"date":"2020-02-04T12:19:04","date_gmt":"2020-02-04T11:19:04","guid":{"rendered":"http:\/\/www.creativecompany.it\/gslex\/?p=1804"},"modified":"2022-12-07T15:05:37","modified_gmt":"2022-12-07T14:05:37","slug":"commento-alla-sentenza-tar-toscana-22-gennaio-2020-n-86-principio-di-rotazione-deroghe-ed-onere-motivazionale","status":"publish","type":"post","link":"https:\/\/gslex.net\/en\/articoli\/commento-alla-sentenza-tar-toscana-22-gennaio-2020-n-86-principio-di-rotazione-deroghe-ed-onere-motivazionale\/","title":{"rendered":"Comment on the Tuscany Regional Administrative Court sentence of 22 January 2020 n. 86. Rotation principle: exceptions and motivational burden"},"content":{"rendered":"

Administrative jurisprudence has often had to deal with the \"principle of rotation\", especially in relation to the criterion of competition.<\/p>\n

It should also be clarified that the so-called \"rotation principle\" is not a principle comparable to the real principles of administrative law of Community origin, such as those of effectiveness and efficiency, proportionality and reasonableness, transparency, non-discrimination and publicity, all expressly referred to in Article 30 (\"Principles for the award and execution of contracts and concessions\u201d) of Legislative Decree no. 50\/2016. Nor does it conflict with the principle of competition, on the contrary constituting an expression of it and operating, in specific cases, as its particular\u00a0method of implementation.<\/p>\n

Thus, even if the art. 30 of Legislative Decree no. 50\/2016, differently from the art. 36 (which specifically concerns sub-threshold contracts), does not expressly provide for it, it has been stated that \"also in art. 30, paragraph 1, of Legislative Decree 18 April 2016, n. 50, the principle of rotation must be considered implicitly referred to, through the more general reference to the principle of free competition\" (Cons. State, section VI, 32 August 2017, n. 4125; in the same sense, Cons. State. Section V , 3 April 2018, no. 2079).<\/p>\n

Moreover, the aforementioned art. 36 establishes that the assignment and execution of works, services and supplies for amounts lower than the thresholds referred to inarticle 35<\/a>take place in compliance with the principles referred to in\u00a0\u00a0articles 30<\/a>, paragraph 1<\/a>,\u00a034<\/a>\u00a0and\u00a0\u00a042<\/a>, as well as in compliance with the principle of rotation of invitations and assignments and in such a way as to ensure the effective possibility of participation of micro, small and medium-sized enterprises.<\/p>\n

Therefore, there is no contradiction between rotation and free competition, but rather a derivative relationship, \"in consideration of its aim to satisfy the need for greater market opening\" (T.A.R. Tuscany, section II, 23 March 2017, n 454; T.A.R. Abruzzo - L'Aquila, 9 June 2016, n. 372), especially in a sector such as that of \"sub-threshold\" tenders, in which the risk of consolidating, especially at the local level, of rent positions is greater anti-competitive behavior by individual operators in the sector who were previously awarded the supply of the service (State Council, Section V, 13 December 2017 n. 5854).<\/p>\n

*<\/p>\n

The cited jurisprudence cannot be considered erroneous. And the ruling of the Tuscany Regional Administrative Court, the subject of this comment, does not differ from the conclusions reached by the aforementioned jurisprudential arrests. It also constitutes an opportunity for some clarifications regarding the operation of the principle of rotation. There seems to be no doubt, in fact, that rotation, if placed as the rule governing the award of public contracts of smaller amounts, expresses the desire for the widest possible involvement of economic operators in the negotiating assignment, and therefore represents a pro- competitive. However, such a statement only captures a profile of the more complex relationship between rotation and free competition, where one takes into account that the rotation could be in contrast with the logic aimed at identifying the most suitable economic operator, which, for quality reasons of the offer or price, it may well be the outgoing operator.<\/p>\n

The question therefore deserves to be examined more analytically.<\/p>\n

Now, if the\u00a0\"rule\" is given by compliance with the \"rotation principle\", through the non-awarding to the previous contractor or the non-invitation of the same (or of the operator already invited to the previous selective procedure), its application will not require a \"motivation\" in the strict sense, but it can be based on the simple reference to the provisions of art. 30 of Legislative Decree no. 50\/2016 and on the reference to the factual data that the operator in consideration is already a participant or successful tenderer in the previous selection.<\/p>\n

On the other hand, the motivation will be necessary in the event of a \"derogation\" from the rotation, since the contracting authority has to account for the choice not to follow the \"rule\", in the light of the specific situation in which it finds itself operating.<\/p>\n

In the case that gave rise to the ruling of the T.A.R. Toscana object of the comment, the appellant alleged precisely the violation of the principle of rotation of invitations and assignments, since the outgoing manager had also been entrusted with the new contract.<\/p>\n

Hence the alleged violation of Article 36 of Legislative Decree April 18, 2016, n. 50.<\/p>\n

It has already been clarified that the rotation has a pro-competitive value, which here assumes the specific scope of preventing the previous contractor, by participating in the new selection, from taking advantage of the information asymmetry that privileges him, as a subject who has already worked with the contracting authority and therefore has an exact knowledge of its needs and requirements.<\/p>\n

*<\/p>\n

Therefore, ordinarily, and unless specifically motivated to the contrary, the previous contractor must not be invited to tender, with the clarification, found in the case law, that this applies with reference to the first assignment following the one in which the operator was awarded, then regaining his full freedom of action.<\/p>\n

From another point of view, the aforementioned jurisprudence highlights that, for the purpose of the rotation principle to be effective, it is necessary that \"the object of the procedure possesses the same characteristics in subjective, quantitative and qualitative terms, as the service already assigned to the recipient of the provision of exclusion, which\u00a0could be characterized as an outgoing company, only on the basis of these factual assumptions\".<\/p>\n

If the rule is the principle of rotation, the only exceptions considered possible by the jurisprudence are substantially those determined by qualified reasons of urgency, which have given rise to assignments for an extremely limited time. In these cases, the outgoing manager can be invited again.<\/p>\n

*<\/p>\n

Clearly, in the\u00a0ANAC Guidelines no. 4\u00a0<\/a>(resolution no. 1097 of 26 October 2016) states that \"compliance with the principle of rotation expressly established byart. 36, paragraph 1, Legislative Decree no. 50\/2016<\/a>\u00a0makes the assignment to the outgoing contractor exceptional and requires a more stringent motivational burden\".<\/p>\n

In an equally peremptory way, in the opinion of the Council of State n. 1329 of 13 September 2016, expressed on the outline of guidelines relating to sub-threshold assignments, it is written that \"the case of assignment to outgoing economic operators is quite different where, in the opinion of the Board, it does not appear sufficient to impose a motivational charge more stringent, when, on the other hand, the completely exceptional nature of both the reiteration of the invitation to the procedure and the re-assignment of the contract to the same economic operator should be taken into account, for example in the face of a found effective absence of alternatives, not being able to forget the observance , among others, of the principle of rotation specifically sanctioned by law (Article 36, paragraph 1)\u201d.<\/p>\n

Well, the sentence of the Tuscany Regional Administrative Court underlines, correctly, how any references to the characteristics of the previous assignment can be relevant to nothing: article 36 does not provide for exclusions from the operation of the principle of rotation which could derive from the duration of the previous assignment or from the particular justification reasons for the same (in this case, the \"experimental\" nature of the service).<\/p>\n<\/div><\/div><\/div><\/div><\/div>","protected":false},"excerpt":{"rendered":"","protected":false},"author":8,"featured_media":3956,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"inline_featured_image":false,"footnotes":""},"categories":[1,80],"tags":[],"class_list":["post-1804","post","type-post","status-publish","format-standard","has-post-thumbnail","hentry","category-articoli","category-enti-non-profit"],"yoast_head":"\nCommento alla sentenza TAR Toscana 22 gennaio 2020 n. 86. 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