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2018 | OriginalPaper | Buchkapitel

In Search of an Effective Enforcement of Consumer Rights: The Italian Case

verfasst von : Giacomo Pailli, Cristina Poncibò

Erschienen in: Enforcement and Effectiveness of Consumer Law

Verlag: Springer International Publishing

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Abstract

This article presents an overview of the actors and mechanisms for consumer protection in Italy. Much of Italian consumer law is EU derived, but the country has sometimes followed a path of its own, e.g., in enacting a domestic version of class action (azione di classe) or in making mediation mandatory for certain categories of disputes. Notwithstanding, much of the responsibility for enforcing consumer law still rests in the hands of public agencies (such as the Italian Competition Authority), while private enforcement lags behind. Lack of coordination between public and private players, and lack of effectiveness of judicial remedies contribute to paint a picture of underenforcement.

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Fußnoten
1
Practitioners and academics generally indicate the Legislative Decree 6 September 2005 no. 206 by the expression ‘Italian Consumer Code’. We follow such practice, although this expression is inaccurate because the Legislative Decree does not have the structure and the content of a code, but it is a restatement of the laws in the field of consumer protection.
 
2
Pasa and Weitenberg (2007), pp. 295–308.
 
3
Legislative Decree of 30 June 2003, no. 196.
 
4
Law of 14 November 1995, no. 481 creating an independent Authority for Electric Energy, Gas and Water.
 
5
Law of 31 July 1997, no. 249 creating an independent Authority for Telecommunications; Legislative Decree of 31 July 2005, no. 177 (Unified Text on Television), and Law 30 April 1998, no. 122 on television activities.
 
6
Law Decree of 2 December 2011, no. 214 (so-called “Salva Italia”).
 
7
If an undertaking try to distort the economic choices of a consumer by, for instance, omitting relevant information, spreading out untruthful information or even using forms of undue influence, the ICA may act, also via interim measure, and impose fines which (since August 2012) could range up to 5 million euro (previously, the maximum was 500,000.00 euro).
 
8
See Battelli (2014a), p. 207.
 
9
Article 27(3) ICC and Article 8(3) of Legislative Decree no. 145/2007.
 
10
Article 27(7) ICC and Article 8(7) of Legislative Decree no. 145/2007.
 
11
See Battelli (2014b), p. 927.
 
12
See, Burbank et al. (2011), pp. 153 ss; Buxbaum (2001), p. 219.
 
13
Chiarloni and Fiorio (2005).
 
14
The Council Website is available at http://​www.​tuttoconsumatori​.​it.
 
15
The Council invites representatives from recognized Environmental Protection Associations and National Consumer Co-Operative Associations to its meetings. Representatives from bodies and organs with the functions of regulating or standardizing the market, of the economic and social sectors concerned, competent public authorities, and experts in the subjects under consideration may also be invited to attend.
 
16
Interestingly, a recent reform in Italian law conferred the antitrust authority an exclusive competence to combat unfair commercial practices also in regulated sectors, after having consulted the sector specific regulator, ‘apart when the breach of sector specific regulation does not result in an unfair commercial practice’ (Article 23(12) Legislative Decree 6 July 2012, No. 95). Unfortunately, the case law of the administrative tribunals still shows a significant degree of uncertainty about the overlapping competencies of the ICA and sectorial authorities.
 
17
Article 9 of Directive 2014/104/EU, implemented as Article 7 of the Legislative Decree of 19 January 2017, no. 3.
 
18
Coggiola and Graziadei (2014), p. 29.
 
19
Coggiola and Graziadei (2014), p. 29.
 
20
Poncibò (2002), pp. 659–669. In particular, the Ministry of Economic Development keeps the list of the national consumers and users’ associations.
Currently, 18 associations are registered in the said list.
 
21
Article 139 and followings of Consumer Code implementing Directive 98/27/EC of the European Parliament and of the Council of 19 May 1998 on injunctions for the protection of consumers’ interests, OJ, L 166, 11 June 1998, 51–55.
 
22
C. Poncibò and E. Rajneri have reported the leading cases (precisely a summary of the facts and legal arguments in English) in the Italian Report prepared for the research project on Collective Redress coordinated by the British Institute of International and Comparative Law. The Italian Report is available at https://​www.​collectiveredres​s.​org/​collective-redress/​member-states.
 
23
C. Poncibò and E. Rajneri have reported the leading cases (precisely a summary of the facts and legal arguments in English) in the Italian Report prepared for the research project on Collective Redress coordinated by the British Institute of International and Comparative Law. The Italian Report is available at https://​www.​collectiveredres​s.​org/​collective-redress/​member-states.
 
24
Chiarloni (1999), p. 263. Resources on Italian civil procedure in English are Cappelletti and Perillo (1965); Varano (1997), pp. 657 ff.; Chiarloni (1999); Taruffo (2002); Colvin and Vigoriti (2008); Trocker and De Cristofaro (2010); Pailli and Trocker (2014), pp. 163–183.
 
25
See Marchesi (2003).
 
26
See Benvenuti (2014). See, also, Reynolds (2003), article 1. Accessed the 21st August 2007 at: http://​www.​bepress.​com/​gj/​advances/​vol3/​iss2/​art1.
 
27
See Tarzia (2001), pp. 1 ss.; Didone (2002); Martino (2001), pp. 1068 ss.; Biavati (2012), p. 475.
 
28
Regulation (EC) No 861/2007 of the European Parliament and of the Council of 11 July 2007 establishing a European Small Claims Procedure, OJ n. L 199, 2007, pp. 1–22, as amended by Regulation (EU) 2015/2421 of the European Parliament and of the Council of 16 December 2015.
 
29
The Legislative Decree 5 has reformed the access to the role of Giudice di Pace in May 2017. The reform is aimed to a global revision of the status of non-professional judges and prosecutors (recruitment, functions, competence, and allowances).
 
30
Lewis (2006), pp. 52–69.
 
31
See Pailli and Trocker (2014).
 
32
The State pays the following: (a) counsel’s fees and expenses; (b) travel costs and expenses incurred by judges, officials and judicial officers for performing their duties outside the court; (c) travel costs and expenses incurred by witnesses, court officials and expert witnesses who incurred expenses when performing their duties are also reimbursed; (d) the cost of publishing any notice regarding the judge's ruling; (e) the cost of official notification.
 
33
President of the Republic’s Decree of 30 May 2002 no. 115, Unified text of laws and regulations on judicial costs (Testo unico delle disposizioni legislative e regolamentari in materia di spese di giustizia), in OJ n. 139, 15 June 2002—Suppl. ordinario n. 126 as amended.
 
34
The income threshold is adjusted every 2 years by order of the Ministry of Justice to take account of variations in ISTAT’s consumer price index.
 
35
For critical remarks in English on the azione di classe, see recently, R. Caponi, “Italian ‘Class Action’ Suits in the Field of Consumer Protection: 2016 Update” (June 16, 2016). Available at SSRN: https://​ssrn.​com/​abstract=​2796611. Poncibò (2015) and Caponi (2011), pp. 61–77.
 
36
Legislative Decree no. 206 of 6 September 2005, OJ 8.10.20015 no. 235 (‘Consumer Code’). Article 2(446) of the Law 24 December 2007, no. 244 (Financial Law for 2008). Publications discussing the old draft bill are still available, of course, and they could generate some confusion in readers less experienced with the Italian system.
 
37
Article 49 of the Law 23 July 2009, no. 99, OJ 31.07.1999 no. 176.
 
38
Article 6 of the Law Decree 24 January 2012, no. 1, ratified by Law 24 March 2012, no. 27, OJ 24.01.1992, no. 19.
 
39
The Competition Law Observatory is available at the following address: http://​www.​osservatorioanti​trust.​eu/​it/​azioni-di-classe-incardinate-nei-tribunali-italiani/​ (last visited, 13 Jan 2017).
 
40
C. Poncibò and E. Rajneri have reported the leading cases (precisely a summary of the facts and legal arguments in English) in the Italian Report prepared for the research project on Collective Redress coordinated by the British Institute of International and Comparative Law. The Italian Report is available at https://​www.​collectiveredres​s.​org/​collective-redress/​member-states.
 
41
Despite the number of 58 actions filed according to the Osservatorio Antitrust, we located actual judicial orders and decisions only for 20 cases (for a total of 38 between orders and decisions, including by courts of appeal and the Supreme Court). The following analysis is based on these documents only.
 
42
Cassazione civile sez. I, 21.11.2016, n. 23631, Intesa San Paolo S.p.A. C. G.F. e altri, (2016) Diritto & Giustizia (the order of the Court of Appeal declaring an azione di classe admissible cannot be appealed, because it does not end the proceedings, but on the contrary it gives instructions on its continuation); Cassazione civile sez. I, 14.06.2012, n. 9772, Codacons C. Soc. Intesa Sanpaolo, (2012) 9, I, Foro it. 2304 (the order of the Court of Appeal declaring an azione di classe inadmissible is merely procedural and cannot be appealed to the Corte di cassazione, because it does not prevent to file individual actions) contrast with Cassazione civile sez. III, 24.04.2015, n. 8433, Codacons C. Soc. Bat Italia, (2016) 2 Responsabilità Civile e Previdenza, 550 (the Third Chamber of the Corte, disagreeing with the First chamber, submits to the Joint Chambers the question of whether an order of the Court of Appeal declaring an azione di classe inadmissible can or cannot be appealed to the Corte di cassazione).
See also the obiter in Cass. n. 23631/2016 supra, disagreeing with the earlier decision of the First chamber (but different judges) n. 9772/2012. Along these lines, the chambers of the Corte disagree on whether a declaration of inadmissibility prevents to file again the same azione di classe.
 
43
Cass. n. 8433/2015, supra.
 
44
One is Corte appello Firenze 15.07.2014, Masciullo e altro C. Monte dei Paschi Siena (2015) 9, I Foro it. 2778; see Iacomin (2015), pp. 89–95. The other is Tribunale di Genova, 13.06.2014, Comitato Tutela del Risparmio v. Banca Carige Spa, available at http://​www.​osservatorioanti​trust.​eu/​it/​wp-content/​uploads/​2014/​06/​Ord-Trib-GE_​Comitato-c-Carige-2014.​pdf (last visited 13 Jan 2017).
 
45
As the reader surely knows, the Italian legal system does not apply the doctrine of binding precedent, and hence previous decisions are not binding. They may well have a persuasive value, especially if coming from the Supreme Court or a well-reputed lower court. See, e.g., Taruffo and La Torre (1997).
 
46
Tribunale Napoli sez. XII 18.02.2013 n. 2195, M. v. W., (2013) 12 Guida al diritto, 16.
 
47
Tribunale Torino 10.04.2014, Gasca et al. v. Intesa Sanpaolo (2014) 9 I Foro it. 2618: “the bank that after August 15, 2009 [date of entry into force of class action] has applied overdrawn fees in consumers’ bank accounts, pursuant to contractual terms that are void, must be ordered to return to the plaintiffs and all legitimate participants these undue sums”.
 
48
In the specific case, such a requirement was specified in the order of admissibility. Regardless, we hope that no other court will ever impose such a cumbersome procedure: bringing an azione di classe is already hard enough without this judge-made addition.
 
50
Corte d’appello di Torino, 17.11.2015, Altroconsumo v. FCA (2016) I Foro it., 1017.
 
53
Finocchiario (2012); see, also, Giovannucci Orlandi (2009), pp. 1229 ff.; Marinaro (2013), p. 105.
 
54
See, e.g., the decisions of the CJEU in cases C-240/98, Océano Grupo Editorial SA v. Roció Murciano Quintero, 2000 E.C.R. I-4941; C-168/05, Elisa María Mostaza Claro v. Centro Móvil Milenium SL, 2006 E.C.R. I-10421 and C-243/08, Pannon GSM Zrt. v Erzsébet Sustikné Győrfi, 2009 E.C.R. I-4713. See Micklitz and Cafaggi (2008), pp. 391, 400–401 for the treatment of arbitration clauses in consumer contracts in some Member States.
 
55
Under the new law of 8 March 2017, n. 17, medical malpractice is now subject to a mandatory pre-trial medical expertise and conciliation attempt (art. 696-bis of the Italian code of civil procedure).
 
56
The scheme is currently regulated by the law of August 9, 2013, no. 98. See Pailli and Trocker (2013), pp. 75–102. A case is currently pending before the CJEU on whether the Italian regime is compatible with the Directive 2013/11/EU on consumer ADR, especially where the Italian law provides for compulsory representation by a lawyer when the pre-trial attempt is mandatory.
 
57
All numbers are taken from the 2016 Annual report on mediation in civil matters prepared by the Ministry of Justice and available at https://​webstat.​giustizia.​it/​Analisi%20​e%20​ricerche/​forms/​mediazione.​aspx (also in English language).
 
58
Lupoi (2012), p. 41.
 
59
Notably, the Court of Justice of the EU in Joined cases C-317/08, C-318/08, C-319/08 and C-320/08, Alassini and others, [2010] ECR I-2213, noted that mandatory pre-trial mediation does not necessarily contrast with the principle of access to courts, recognizing that : “no less restrictive alternative to the implementation of a mandatory procedure exists, since the introduction of an out-of-court settlement procedure which is merely optional is not as efficient a means of achieving those objective” (par. 65).
 
60
See, e.g., the Annual Report prepared by the ICA for 2016, available at https://​www.​agcom.​it/​relazioni-annuali.
 
62
See Desiato (2016), p. 1793B.
 
63
Article 23(12) Legislative Decree 6 July 2012, No. 95.
 
64
Similarly, the Office of Fair Trading can file for injunctive relief with regard to unfair terms in consumer contracts. See: Regulation 8 Unfair Terms in Consumer Contracts Regulations 1994; Regulation 12 of the Unfair Terms in Consumer Contracts Regulations 1999; Part 8 of the Enterprise Act 2002. OFT, Enforcement of consumer protection legislation, Guidance on Part 8 of the Enterprise Act, Office of Fair Trading (2003) 18 ff., p. 76 f. Usually, the threat of OFT seeking an order is sufficient to prompt businesses to change their general clauses.
 
65
See supra Sect. 3.1.
 
66
See Legislative Decree of 19 January 2017, no. 3 implementing the Directive 2014/104/EU on antitrust damages actions and especially Article 7 of follow-on actions (see also supra Sect. 3.1).
 
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Metadaten
Titel
In Search of an Effective Enforcement of Consumer Rights: The Italian Case
verfasst von
Giacomo Pailli
Cristina Poncibò
Copyright-Jahr
2018
DOI
https://doi.org/10.1007/978-3-319-78431-1_14