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 Regulation in Israel
Values, Effectiveness, Methods
Edited by
Eyal Tevet
Varda Shiffer
Itzhak Galnoor
Regulation in Israel
Eyal Tevet · Varda Shiffer · Itzhak Galnoor
Editors

Regulation in Israel
Values, Effectiveness, Methods
Editors
Eyal Tevet Varda Shiffer
Open University of Israel The Van Leer Jerusalem Institute
Ra’anana, Israel Jerusalem, Israel

Itzhak Galnoor
The Van Leer Jerusalem Institute
Jerusalem, Israel

ISBN 978-3-030-56246-5 ISBN 978-3-030-56247-2 (eBook)

https://doi.org/10.1007/978-3-030-56247-2

© The Editor(s) (if applicable) and The Author(s), under exclusive license to Springer
Nature Switzerland AG 2021
This work is subject to copyright. All rights are solely and exclusively licensed by the
Publisher, whether the whole or part of the material is concerned, specifically the rights
of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on
microfilms or in any other physical way, and transmission or information storage and
retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology
now known or hereafter developed.
The use of general descriptive names, registered names, trademarks, service marks, etc.
in this publication does not imply, even in the absence of a specific statement, that such
names are exempt from the relevant protective laws and regulations and therefore free for
general use.
The publisher, the authors and the editors are safe to assume that the advice and informa-
tion in this book are believed to be true and accurate at the date of publication. Neither
the publisher nor the authors or the editors give a warranty, expressed or implied, with
respect to the material contained herein or for any errors or omissions that may have been
made. The publisher remains neutral with regard to jurisdictional claims in published maps
and institutional affiliations.

This Palgrave Macmillan imprint is published by the registered company Springer Nature
Switzerland AG
The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland
The book is dedicated to the memory of our colleague, Dr. Nissan Limor,
who generously shared his abundant knowledge with all of us. Regretfully,
he passed away before publication of his article in the book.
 Preface

This volume represents the second of three segments of a comprehen-

sive research project launched by the Chazan Center for Social Justice
and Democracy at the Van Leer Jerusalem Institute in 2007. The three
segments represent evolving and interwoven ideas that were examined
theoretically as well as through case studies in research groups that took
place at the Van Leer Institute between 2012 and 2017. The products of
these research groups generated three collections of articles. The first,
‘The Privatization of Israel,’ described and analyzed the ‘Privatization
Revolution’ and the withdrawal of the State from its traditional responsi-
bilities since the late 1980s. The second, this volume, deals with ‘Regula-
tion in Israel—Values, Effectiveness, Methods.’ The third, ‘Collaborative
Governance,’ proposes models of policy-making that involve stakeholders,
thus addressing some of the challenges brought about by the political
and administrative changes reflecting the privatization and the regulation
processes. All three are being published in Hebrew and in English.
As a result of the massive outsourcing of government activities and the
transfer of public assets to private ownership, new ways of securing the
availability and quality of public services and of safeguarding the public
interest were required. The term ‘regulation’ and the role of the regu-
lator have become much more salient, and government ministries began
to define themselves as regulators, when just a decade earlier they were
still operating as direct service-providing bureaucracies. It is this shift in
the role of the state, and its implications for institutional structures and

vii
viii PREFACE

for the ways in which the public interest is factored into governance, that
is the focus of this collection of articles. Each researches regulation in
a specific area, revealing the uncertain nature of the current regulatory
schemes—sometimes entailing a trial and error process, and sometimes
arousing strong opposition and fierce public debates. The speedy privati-
zation steps do not seem to have been accompanied by plans to guide the
government in the new role it had to assume.
Regulatory issues, some of them quite scandalous, coincided with the
preparation of this collection—prompting us to add a short postscript
which relates to current events. A reflection on the wider picture of regu-
lation in Israel, as described and analyzed in this collection, coupled with
frequent ‘news items,’ suggests that the government, the regulators, and
the regulated organizations, as well as the courts, are in the process of
figuring out what the issues are and how to cope with them. In many of
the areas examined in this volume, we see frequent changes in regulatory
frameworks, new layers of regulation being added to existing and more
traditional methods, and a quest for creating more transparency and trust
in the regulatory processes.
A more worrying aspect of this shift in the role of government is that
new opportunities for corruption seem to present themselves through
the tender mechanism and other forms of public-private partnerships.
The introduction of for-profit values into public services, in cases such
as public transportation and the water corporations, reveals the vulnera-
bility of the new schemes to corruption. It is hoped that the case studies
analyzed in this volume will generate a thorough review of current regu-
latory arrangements with a view to addressing the issues and challenges
raised.

Ra’anana, Israel Eyal Tevet

Jerusalem, Israel Varda Shiffer
Jerusalem, Israel Itzhak Galnoor
 Acknowledgments

We wish to thank the Chazan Center for Social Justice and Democracy
and its director, Nomika Zion, for their long and outstanding support of
the entire ‘Trilogy’ project until the closure of the Center in 2018. The
Van Leer Jerusalem Institute, which hosted the Chazan Center, continued
to be the home of the project and of the present segment on Regulation
in Israel in particular. We are most grateful to Prof. Shai Lavi, the Director
of the Van Leer Jerusalem Institute, and to Shimon Alon, the COO.
This collection would not have come to light without the many
scholars and practitioners who participated in the research group, the
seminars, and the conferences that were part of the process of learning
and research. Not all the participants wrote articles that are included in
this book, but all of them contributed to our understanding of the issues
and our quest for improved regulatory schemes. We are grateful to all of
them.
The project benefited from the ongoing financial support of the
Kibbutz Movement and the Havatzelet Fund, and of the Sam and Bella
Sebba Charitable Trust, for which we are deeply grateful.
Special thanks to the English language editor Esther Hecht and to the
editors of Palgrave Macmillan for their diligent work and guidance.

ix
 Contents

Introduction: Regulation—A Multifaceted Instrument 1

Itzhak Galnoor, Eyal Tevet, and Varda Shiffer

Regulation Policy as a Means of Balancing Conflicting

Interests

Banking Regulation in Israel: Balancing Systemic Stability

and Consumer Protection 27
Ruth Plato-Shinar

The Tricky Nature of State-owned Enterprises: The Impact

of Government Ownership 49
Avital Birger

Regulation of Water and Sewage Corporations: Impact

on Prices and Services 77
Eyal Tevet and Gal Talit

xi
xii CONTENTS

Old and New—Multi-layered Regulatory Schemes

Regulation of Third Sector Organizations in Israel 97

Noy Brindt and Nissan Limor

Regulation of Natural Resources and Environmental

Protection in Israel’s Marine and Coastal Zone 121
Tzipi Iser Itsiq

Caught Between Traditional Inspection and Performance

Measurement: Regulation of the Israeli Education System 145
Varda Shiffer

Innovative Regulatory Tools

When Cybersecurity Meets the Regulatory State:

Case-Study Analysis of the Israeli Cybersecurity
Regulatory Regime 173
Ido Sivan-Sevilla and Shani Sharvit

Regulating the Supply of Public Bus Services in Israel 195

Yoram Ida and Gal Talit

Israel’s Law and Regulation After the Gas Discoveries 217

Sharon Yadin

Conclusions: Over-Regulation or Under-Regulation? 239

Eyal Tevet, Varda Shiffer, and Itzhak Galnoor

Index 253
 Notes on Contributors

Avital Birger specializes in corporate and administrative law and corpo-

rate governance of State-Owned Enterprises (SOEs). As senior deputy
legal counsel of the Government Companies Authority (GCA), she has
been responsible for legal aspects of privatization, structural changes,
and corporate governance reforms of many of the Israeli SOEs since the
1990s. As part of the accession process of Israel to the OECD, Dr. Birger
represented the GCA in the revision of corporate governance of SOEs in
Israel by the Working Party on State Ownership and Privatization Practice
of the OECD. As bureau member of the Working Party (2011–2014), she
took part in the revision of the OECD Guidelines on Corporate Gover-
nance of State-Owned Enterprises, published in 2015. Dr. Birger holds
a Ph.D., LL.M., and a LL.B. from the Faculty of Law of the Hebrew
University of Jerusalem.
Noy Brindt is a doctoral student (Ph.D.) in the Law Faculty of Haifa
University, Israel. His doctoral work focuses on institutional analysis
of non-profit organizations’ legal frameworks. His research interests
include corporate law, non-profit organizational law, corporate gover-
nance, non-profit theories, and organizations’ intuitionalism. Noy served
as a Research Fellow in the Van Leer Forum for Civil Society Organi-
zations and has collaborated on several research initiatives examining the
Israeli third sector regulation and legal regime. Noy is an active attorney at
law (LL.B.) and an economist (B.A.), serves as general counsel of several

xiii
xiv NOTES ON CONTRIBUTORS

Israeli non-profit organizations, and works as an independent researcher

and lecturer in the non-profit field.
Itzhak Galnoor Herbert Samuel Professor of Political Science at the
Hebrew University of Jerusalem (emeritus); Senior Fellow at the Van
Leer Institute, Jerusalem. He served on the Executive Committee of the
International Political Science Association (IPSA) and edited its Advances
in Political Science (Cambridge University Press) book series. He was
Head of the Civil Service Commission in Prime Minister Rabin govern-
ment (1994–1996); the Israel Science Foundation’s Executive Committee
and on the Governing Board of Hebrew University of Jerusalem. In
2007–2008, he was the Deputy Chair of the Israeli Council of Higher
Education. In 2015, he was awarded the Life Achievement Prize by
the Association of Israel Studies (AIS). Latest books in English: Public
Management in Israel: Development, Structure, Functions and Reforms,
Routledge, 2011. The Handbook of Israel’s Political System, (with Dana
Blander), Cambridge University Press, 2018. The Privatization of Israel:
The Withdrawal of State Responsibility (with Amir Paz-Fuchs and Ronen
Mandelkern), eds., Palgrave Macmillan, 2018.
Yoram Ida is a Senior Lecturer in the Department of Public Policy and
Administration, Sapir Academic College, and a Teaching Fellow in the
Department of Public Policy, Tel Aviv University. His research interests
include economic and social aspects of government regulation of public
transportation service, government regulation of employment of migrant
workers in Israel, and inequality in local government service provision.
He was a member of the Van Leer Jerusalem Institute—Hazan Center
for Social Justice and Democracy regulation research team.
Tzipi Iser Itsiq is a partner in Lipa Meir & Co. Law Firm and Director
of the Environmental Protection, Cleantech and Clean Energy Depart-
ment. Tzipi has extensive experience in promoting innovative regulatory
reforms in the field of environmental protection and in accompanying
legal and environmental disputes in her former role as Executive Director
of the Israel Union for Environmental Defense (Adam Teva Ve’Din). She
serves as a Lecturer and as the Director of the Center for Environmental
Protection at Netanya Academic College. Tzipi holds LL.B. and LL.M.
from Tel Aviv University and Ph.D. from Bar-Ilan University (Faculty of
Law), where her doctoral dissertation focused on environmental regula-
tion. Consecutively named a leading environmental lawyer by domestic
 NOTES ON CONTRIBUTORS xv

and international rankings, Tzipi is frequently invited to take part in

government policy drafting forums on legislative and regulatory initia-
tives. Tzipi serves as a board member of the Israel Society of Ecology and
Environmental Science.
Nissan Limor was a Senior Research Fellow at the Institute of Law and
Philanthropy, Buchmann Faculty of Law, Tel Aviv University; a faculty
member and Chair of the Center of Civic Responsibility in this College
for Academic Studies, Or Yehuda. He was a known and distinguished
researcher, and his academic work covered a variety of areas, including civil
society, non-profit organizations, higher education, and the economy of
education. He taught previously at the Hebrew University of Jerusalem,
the Paul Baerwald School of Social Welfare, M.A. program for Manage-
ment of Non-profit and Community Organizations, and at the Ben-
Gurion University of the Negev, Guilford Glazer School of Business and
Management, M.A. program for Management of Non-profits. Nissan has
written and edited six books on non-profit management, regulation and
auditing, and numerous articles and policy papers. He also served as a
Senior Research Fellow and the Head of the Van Leer Forum for Civil
Society Organizations, at the van leer Jerusalem Institute. He was a
Director-General of the Office of the President of Israel and a former
Director-General of the Israeli Council for Higher education. Nissan
Passed away on Friday, November 17, 2017.
Ruth Plato-Shinar is a Full Professor of Banking Law and Finan-
cial Regulation, and the Director of the Center for Banking Law and
Financial Regulation at the Netanya Academic College. Ruth is the
author of the books: The Banks’ Fiduciary Duty; Banking Regulation in
Israel—Prudential Regulation versus Consumer Protection. The opinions
expressed in her books became binding precedents of the Israeli Supreme
Court. Ruth is the Advisory Board Chairperson of the Israeli Commis-
sioner of Financial Service Providers; the Advisory Board Deputy Chair-
person of the Israeli Commissioner of Capital Markets, Insurance and
Savings; a member of the Advisory Committee of the Governor of the
Bank of Israel, and the License Committee of the Supervisor of Banks.
She also serves on the Academic Boards of AIIFL at the Hong-Kong
University and CCLS at the Queen Mary University, London.
xvi NOTES ON CONTRIBUTORS

Shani Sharvit leads the policy division in the Israeli National Cyber
Directorate. The division is responsible for the development of cyber-
related public policy, the directorate’s government relations, and the
directorate’s budget. Ms. Sharvit previously held the position of Policy
and Administration Executive Director. In that capacity, she was respon-
sible for the implementation of the strategic government resolution
regarding cyber in Israel and for the directorate organization. In 2011,
Ms. Sharvit was the Head of the Establishment Administration of the
Israeli Cyber Bureau in 2011. Ms. Sharvit holds vast experience of more
than 20 years in the Israeli government, during which she worked at
the national decision-making junction on core issues in Israel’s economy
and society, promoting cross-cutting work on cross-government ministries
issues. Ms. Sharvit served as advisor to the Director-General of the Prime
Minister’s office and before that as an assistant to the Chair of the House
Committee of the Israeli Parliament. Ms. Sharvit has an M.A. (Honors
Program) in Public Policy and a B.A. in Political Science and Middle
Eastern Studies, both from the Hebrew University of Jerusalem.
Varda Shiffer is Senior Research Fellow, at the Van Leer Jerusalem
Institute. She worked at the Mandel Foundation-Israel between 1997
and 2012 and was the president of the foundation, and the founder
and director of the Mandel Center for Leadership in the Negev. She
served as chief scientist of the civil service commission and taught at
the Ben-Gurion University of the Negev. Shiffer has a Ph.D. in polit-
ical science from the Hebrew University of Jerusalem. At the Van Leer
Jerusalem Institute, Dr. Shiffer directs the program for developing models
of collaborative governance in local authorities.
Ido Sivan-Sevilla is a Public Policy Scholar and Postdoctoral Fellow
at Cornell Tech’s Digital Life Initiative (DLI). He is interested in the
design of and compliance with governance arrangements for our data
capitalist society, focusing on cybersecurity, privacy, inequality, manipu-
lation, and discrimination problems. His work has been published in the
Journal of Risk Research, Policy & Internet, Georgetown Journal of Inter-
national Affairs, the Columbia Science and Technology Law Review,
and NATO’s International Conference on Cyber Conflict (CyCon).
Ido completed his Ph.D. at the Federmann School of Public Policy
& Government at the Hebrew University of Jerusalem, was a M.A.
Fulbright Scholar at the Humphrey School of Public Affairs, Univer-
sity of Minnesota, and completed his B.A. with honors in Computer
 NOTES ON CONTRIBUTORS xvii

Science from the Technion—Israel’s Institute of Technology. He holds

a vast background in information security, with eight years of experience
from the private sector, Israel’s Prime Minister’s Office, and the Israeli
Air-Force [Captain].
Gal Talit is an urban and regional planner and holds a Ph.D. in Public
Policy. Her main areas of research and teaching are: local government,
land and planning policy, privatization and outsourcing in the public
sector in general and local government in particular, and the regulation of
public services such as public transportation by buses, water corporations,
employment of migrant workers, supplying social services, and more.
She teaches at the Open University of Israel—Department of Sociology,
Political Science, and Communication. She was a member of the Van
Leer Jerusalem Institute—Hazan Center for Social Justice and Democ-
racy regulation research team. She was working for many years in the
public and private sectors. She is a member of public organizations, such
as a committee to determine the boundaries of jurisdiction between local
authorities and a Lay Judge (workers’ representative) in the Tel Aviv
Labor Court.
Eyal Tevet is Course Convener and Tutor in the Department of Soci-
ology, Political Science, and Communications at the Open University. He
is also a researcher and the academic co-director of a study on regulation
in Israel, conducted at the Van Leer Jerusalem Institute.
Sharon Yadin is an Associate Professor of Law at Peres Academic
Center, specializing in law and regulation, regulatory theory, and admin-
istrative law. Her latest research focuses on contractual regulation, regu-
lation by shaming, regulation in the digital age, and regulatory capture.
Sharon is the author of Regulation: Administrative Law in the Age of
Regulatory Contracts (2016), which was cited by the Israeli Supreme
Court, adopting its thesis, and New Regulation: A Revolution in Public
Law (2018). Her articles were published in leading law reviews worldwide
and won prestigious awards. Dr. Yadin is a Gorney laureate and a Lady
Davis scholar, and also serves as a member of prominent self-regulatory
bodies in Israel, including the Israel Press Council and Maala, a non-profit
promoting corporate social responsibility.
 Abbreviations

CEO Chief Executive Officer

GCA Government Companies Authority
GCL Government Companies Law, 5735–1975
HCJ The Israeli High Court of Justice
ICT Information and Communication Technologies
IMF International Monetary Fund
INCD Israeli National Cyber Directorate
NPO Non-Profit Organization
OECD The Organization for Economic Co-operation and Development
PISA OECD’s Programme for International Student Assessment
PMP Proper Management Procedures
RAMA National Authority for Assessment and Evaluation in Education
RIA Regulatory Impact Analysis
SOE(s) State-Owned Enterprise(s)
TIMSS OECD’s Trends in International Mathematics and Science Study
WP SOPP Working Party on State-Ownership and Privatization Practices, a
subsidiary of the OECD’s Corporate Governance Committee

xix
 List of Figures

Regulating the Supply of Public Bus Services in Israel

Fig. 1 System of Regulation of Public Bus Services in Israel (Source
Ida and Talit [2017, 83]) 201
Fig. 2 Planned Regulation System in Israel (Source Ida and Talit
[2017, 84]) 202

xxi
 Introduction: Regulation—A Multifaceted
Instrument

Itzhak Galnoor, Eyal Tevet, and Varda Shiffer

Regulation1
Regulation does not exist in its own right. It is one of many policy tools,
such as primary legislation, taxation, subsidies, privatization, nationaliza-
tion, legalization, or the outlawing, of a behavior or activity, and removal
of regulation. In the past, the term mainly denoted the executive branch’s
oversight of commercial organizations, and it relied mainly on explicit
laws that authorized various state bodies, state officials, or local govern-
ment to act as regulators. Consequently, regulation was viewed primarily
as obligatory rules of conduct of organizations and individuals, and the
regulator was viewed as the one responsible for formulating and enforcing
the rules. A broader definition of the term emphasized the sociopolitical
role of regulation: “sustained and focused control exercised by a public
agency over activities that are valued by the community” (Selznick 1985,

1 This introduction is based on Galnoor and Oser (2015).

I. Galnoor (B) · V. Shiffer

The Van Leer Jerusalem Institute, Jerusalem, Israel
e-mail: itzhakg@vanleer.org.il
E. Tevet
The Open University of Israel, Ra’anana, Israel

© The Author(s) 2021 1

E. Tevet et al. (eds.), Regulation in Israel,
https://doi.org/10.1007/978-3-030-56247-2_1
2 I. GALNOOR ET AL.

p. 363). According to this definition, regulation is more than enforce-

ment of the law; its aim is to achieve social goals, including the proper
functioning of the economic market. One must distinguish between regu-
lation as defined above and quasi-regulatory activities, such as individual
initiatives of supervision, oversight, and independent establishment of
standards, rules, methods, and means of supervision, violations of which
are subject only to social or economic sanctions. By submitting to quasi-
regulatory activity, individuals and organizations distinguish themselves
in order to obtain a competitive advantage or position. In our definitions,
which appear at the end of this introduction, we have adopted the broader
view of regulation and have included additional components, but only to
a certain extent. On the other hand, we have defined the regulator more
narrowly, viewing the regulator as one who is part of an administrative
body in the state’s (or local government’s) executive branch and who acts
to implement regulation in accordance with the law.2
Legislation is the most common means of establishing a regulatory
body and of formulating rules for regulating a particular field. Examples
include Israel’s Accountants Law, Patents Law, Securities Law, the Agri-
cultural Supervision Authority Law, the Bezeq Law (satellite television
broadcasts), the Water and Sewage Corporations Law, the Natural Gas
Sector Law, the Bank of Israel Law, and the Public Broadcasting Law.
This list of laws represents several key motives for regulation: authoriza-
tion of professionals in sensitive fields, preservation of the individual’s
property right, regulation of the financial market, maintenance of public
health, balancing branch stability and consumers’ rights (e.g., in the water
and electricity markets or in banking), and supervision of public property
(such as the airspace). Other important motivations include coping with
what are called “market failures” (monopolies, the absence of competi-
tion between businesses, marketing of dangerous products, the absence of
transparency in information to consumers, and environmental pollution).
The list could include additional social motivations, such as regulation of
the public labor market by means of a minimum wage law, regulariza-
tion of the work of labor contractors, affirmative action for disadvantaged
groups, supervision of the use of drugs, or safeguarding the free use of
public resources, such as beaches.

2 For the broader definition, which sees legislation, monitoring, and enforcement of
laws as part of regulation carried out by the “regulatory state,” see Levi-Faur (2011a,
chapter 1).
 INTRODUCTION: REGULATION—A MULTIFACETED INSTRUMENT 3

The roles of regulation that are the responsibility of entities in the

government’s public sector include supervision of local government by
appointees responsible for the Ministry of Interior’s districts; supervision
of the water pollution level in the national water carrier, conducted by
inspectors from the Ministry of Health; supervision of protection of the
beaches and prevention of pollution of the sea, which is the responsibility
of the Ministry of Environmental Protection. The supervisor of banks
is a typical regulator, as is the director-general of the Israel Competi-
tion Authority, the registrar of associations, and the Second Television
and Radio Authority, which was established by a special law in order to
oversee the commercial television channels. These are the varied forms
and methods of regulation that have been discussed extensively in the
literature.3
Sharon Yadin, for example, classifies regulation into three main types,
starting with the broadest, which includes all the means of social control;
followed by an inner circle in which the focus is the state’s intervention in
the financial market; and concluding with the limiting approach according
to which these are obligatory rules that the regulatory authority oversees
(Yadin 2016, pp. 22–24).
Another way of classifying regulation is to consider the approaches
regarding its necessity: those that assume that regulation is essential
and ask to what extent and how, as opposed to those that are inter-
ested primarily in questions of deregulation.4 Also, some argue that the
state should intervene—directly or by means of regulation—only when
there are market failures that justify such intervention, such as a natural
monopoly, inherent advantages of size, external influences, or a “free
rider.”5

3 Regulation, a journal published in the United States since 1977, is devoted to

regulation and deals mainly with promoting a policy of deregulation. Regulation and
Governance, a journal that first appeared in 2007, combines issues of governance and
regulation. See also Majone (1990).
4 See Baldwin (2006), Baldwin et al. (2012), Barzelay (1992), Behn (2001),
Gunningham and Grabosky (1998), Kelman (1981), Levi-Faur (2006), Moran (2003),
OECD (2009), Radaelli (2004), Radaelli and De Francesco (2007), Skrzycky (2003), and
Sparrow (2000).
5 That is, it is an inefficient distribution of goods or services that occurs when some
individuals are allowed to consume more than their fair share of the shared resource or
pay less than their fair share of the costs.
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riconoscere che noi indipendenti siamo nati e indipendenti vogliamo
morire!
— Ma che ci fa la predica costui? — chiesero alcune voci.
— Che ci conta di fratelli, che ci conta d’indipendenza? Noi faremo la
guerra a tutti, forastieri e paesani che saran nostri nemici —
dicevano tra loro i capibanda.
Nel mormorio generale d’insoddisfazione si udivano qua e là delle
grida, delle bestemmie, delle ingiurie. Il linguaggio del giovane
pareva a tutti, più che nuovo, strano: egli però si teneva diritto ed
immobile, punto sorpreso dell’agitazione che aveva provocato. Dei
tre che erano entrati con lui solo Pietro il Toro pareva che
approvasse ciò che il giovane aveva detto, mentre il Ghiro ed il
Magaro, quantunque si tenessero in un certo riserbo, scambiavano
occhiate coi vicini, e si stringevano nelle spalle come se
rinnegassero ogni solidarietà con colui che aveva parlato alla folla.
— Io voglio dirvi questo, o amici — continuò il giovane — su noi
pesa un’infame calunnia che ora è tempo di smentire, il nostro valore
è detto ferocia; il nostro patriottismo, pel quale siam pronti a
riprendere le armi, è detto ipocrisia per legittimare la violenza, il
furto, la rapina; la nostra religione ci si rimprovera come un avanzo
di barbarie, la nostra fede al legittimo Re che Dio ci ha dato è detta
cecità di spiriti nati al servaggio. Smentiamo queste calunnie;
mostriamo che la ribellione allo straniero invasore è dignità di uomini
che non vogliono piegarsi sotto il giogo di coloro che coi mentiti nomi
di fratellanza e di libertà vengon da noi per sedurre le nostre donne,
per vilipendere la nostra religione, per balzar dal trono il nostro Re.
Bisogna per vincere combatter compatti, rispettando gli averi, la vita,
l’onore degl’innocenti: combattere da soldati, non da predoni; da
guerrieri, non da briganti!
— Ma insomma — chiesero alcune voci — chi dà a costui il diritto di
parlarci in tal modo?
— Facciamolo zittire, facciamolo zittire — dissero ad una voce
Francatrippa, Parafante e Taccone che si sentivano presi di mira
dalle parole del giovane.
— Aspettate — disse il Vizzarro che fin allora aveva taciuto — andrò
io a turargli la bocca.
Si fece largo tra la folla e avvicinatosi all’impalcato su cui era il
giovane, disse a questo con voce breve e accompagnando le parole
col gesto:
— Scendi, orsù, che ne abbiamo abbastanza.
Il giovane lo guardò sorpreso.
— Io mi chiamo il Vizzarro, hai capito? E quando il Vizzarro dà un
ordine, nessuno l’ha finora trasgredito.
— Ed io mi chiamo il colonnello Riccardo — rispose il giovane con
voce calma e guardando negli occhi il suo interlocutore — emissario
di S. M. la Regina. Ma mi chiamassi anche Riccardo semplicemente,
non ubbidirei certo a un mascalzone tuo pari.
— A me mascalzone! — urlò il Vizzarro. E di un salto si slanciò sul
giovane; ma, e al certo con sua gran meraviglia, questi lo prese pel
petto, lo squassò, lo trasse a sè e poi lo scaraventò nel mezzo del
baraccato, tornando senza scomporsi a rivolgersi alla folla
ammutolita per la sorpresa.
Ma gli amici del Vizzarro tratti i coltelli si erano precipitati per
accorrere in difesa del loro capo, quando si trovarono dinanzi un
omicciattolo che sbarrò loro la via.
— Miei cari — disse Pietro il Toro con voce tranquilla — finora lasciai
fare perchè si trattava di uno contro uno; del resto, se fossero stati
anche dieci, so che il capitano... o il colonnello Riccardo basterebbe
a sbrigarsela; ma voi dovete far i conti con me, voi altri.
E con un viso che l’ira aveva incominciato a sconvolgere tanto da
mutarne in orridezza il grottesco, si fece innanzi con la mano all’elsa
della pistola.
— Basta, basta: vogliamo finirla in una carneficina? — gridarono
alcune voci, mentre i più autorevoli dei capibanda circondavano il
Vizzarro, i cui occhi iniettati di sangue mandavano baleni.
Riccardo fece un segno, e la folla tacque, soggiogata suo malgrado.
— Sono io per il primo — disse con voce tranquilla — a deplorare
l’accaduto. Non fui io l’aggressore; io mi limitai a difendermi. Ma non
è questo il luogo per le nostre bizze private. Qui ci siamo raccolti per
intenderci sul piano da adottare. E anzitutto volete che si elegga un
capo supremo, al quale tutti, io pel primo, dobbiam giurare cieca
obbedienza? Chi assente, alzi la mano.
— No, no, ognuno per sè, ognuno per sè — urlò la folla.
— Ed io, invece, io dico che ha ragione, che ci è bisogno d’un capo
supremo, e che nessuno è più degno di comandare a noi tutti di
questo uomo, innanzi al quale siete ora divenuti tante pecore.
In ciò dire il bel giovanotto, nel quale era stata riconosciuta l’amante
del Vizzaro, salì sull’impalcato, volgendo uno sguardo di sfida alla
folla sorpresa di tanta audacia.
— Sì — continuò la giovane donna. — Io sono del suo avviso. Lo so,
voi siete tutti stupiti che io, io proprio, l’amante del Vizzarro, la quale
per essere libera rinunciò al nobile ed onorato nome dei padri suoi, e
come una vil femmina si diede alla campagna, trovi giusto che se si
ha da far guerra allo straniero, bisogna scegliere un capo supremo
che valga più di noi tutti. Ebbene, io vi propongo per capo colui che
ha osato sfidarci, dicendoci in faccia esser noi dei briganti assetati di
sangue e di rapina. Quale prova maggiore di audacia? Ed ha
provato altresì che come ha franca la lingua ha impavido il cuore
respingendo il suo assalitore. Sia lui dunque il capo, e io per la prima
giuro di ubbidire ciecamente ai suoi ordini.
Gli astanti si guardarono muti e incerti. Ma il più stupido di tutti era il
Vizzarro che non credeva ai suoi occhi. Lei, lei si dichiarava pronta a
ubbidire a chi egli considerava ormai come il suo mortale nemico?
Lei, che aveva sempre fatto suoi gli odî, i rancori, le inimicizie di lui?
Lei si sarebbe sottoposta ad un capo, lei che non riconosceva
neanche l’autorità dell’uomo pel quale aveva posto in oblio patria,
onore, famiglia; lei che aveva rinunciato a quanto una donna ha di
più caro per seguirlo nei boschi, gli si ribellava ora, si schierava
contro di lui e in favore di uno sconosciuto che innanzi a tanta gente
non solo aveva mostrato di non temerlo, ma anche ne aveva
respinto vittoriosamente l’aggressione?... Trattenuto da alcuni dei
capibanda, si contorceva ruggendo di rabbia.
— Calmati, calmati — gli dicevano i capibanda — avrai tempo per
fare le tue vendette. Ma è una matta quella tua amica. Come le è
venuto in testa? Già, quel caporale o quel colonnello è un bel
giovanotto, bisogna convenirne, e ne ha del coraggio. Ma le
femmine son tutte ad un modo... E poi non vedete come è ben
vestito?
— Io me ne berrò il sangue, dell’uno e dell’altra — disse il Vizzarro
che si mordeva le dita, mentre cercava di svincolarsi da coloro che lo
trattenevano.
Intanto il resto della folla pareva quasi convinto che fosse necessario
si eleggesse un capo. Già si udivano voci di approvazione e il
mormorio cresceva, soffocando le proteste dei pochi. La maschia e
fiera bellezza del giovane, la ricchezza delle vesti, l’essersi
annunziato per emissario della Regina, la prova di coraggio e di
forza che aveva dato respingendo l’aggressione del terribile e
temuto Vizzarro, l’intervento di quella donna così bella in viso ma
così torva nello sguardo avevano soggiogato i due terzi dei
convenuti.
Il giovane, con le braccia conserte e immobile aspettava che si
venisse ad una decisione. Senza mostrarsene lusingato, però
compiaciuto dell’intervento di quel garzoncello, nel quale aveva
riconosciuto una donna, l’aveva salutata con un cenno della testa e
poi era tornato nel primo atteggiamento, fiero ma non spavaldo.
— Ebbene sì, — gridarono finalmente alcune voci — nominiamo un
capo supremo, che stabilisca un disegno e...
— Il capo supremo è Sua Maestà il Re, nostro legittimo sovrano: —
gridò una voce dall’uscio.
Tutti si volsero meravigliati. Fermo sull’uscio era un signore in su i
sessant’anni, di aspetto altero, vestito di un soprabito grigio che
aveva sbottonato perchè apparissero le gemmate decorazioni onde
aveva cosparso il petto. Dietro a lui alcuni scudieri vestiti alla militare
reggevano per freno i cavalli, mentre altri, armati di carabina, si
tenevano in fondo.
— Il duca di Fagnano! — gridò Pietro il Toro. E i suoi occhietti si
volgevano ora al nuovo venuto, ora a Riccardo che si era fatto
pallido in viso, perocchè le parole del padre di Alma erano una
smentita alle sue parole.
— Chi è costui? — chiese Vittoria, l’amante del Vizzarro, che si era
tenuta fin allora vicino al giovane. — Che viene a far qui costui?
Intanto il duca si era avanzato tra la folla, e giunto presso
all’impalcato vi salì.
— Noi — disse — sapevamo che in questo giorno i fedeli del nostro
Re, coloro che han giurato di spargere il loro sangue pel sostegno
del trono, si sarebbero qui raccolti dietro invito non so di chi, ma
certo voglio sperare, voglio credere, di un suddito che non da
ambizione personale fu mosso a convocarvi per scegliere un capo,
ma da un nobile e leale interessamento. Io non so in nome di chi ha
parlato; io, invece, io duca di Fagnano e primo scudiere di S. M. la
Regina, parlo in nome del Re nostro signore. La guerra che
imprendiamo non ha bisogno di capi supremi: un capo supremo
potrebbe anzi riescir pericoloso, perchè noi sappiamo che i nostri
perfidi nemici sanno avvalersi di qualunque mezzo, e se non
possono vincere con le armi, cercan di vincere col tradimento, con le
insidie e con la corruzione. Nessun capo dunque, ma ognuno sia
capo nell’ambito del territorio che è chiamato a difendere.
— Bene, bravo, evviva il Re!... Sì, sì, nessun capo — gridò la folla e,
più di tutti, coloro che temevano di dover riconoscere un’autorità
suprema.
— Io ho già — continuò il duca spiegando una carta — ben
determinati gli ordini da comunicarvi con la designazione dei luoghi
nei quali ciascun di voi dovrà agire per non dar pace al nemico e per
costringerlo a sgombrare da queste terre di cui il Re Ferdinando ha
ricevuto da Dio l’assoluto dominio. A voi, Taccone e Quagliarella, i
monti della Basilicata; a voi Marsico e Carmine Antonio le montagne
del Pollino, i piani di Castrovillari e di Campotenese; a voi Parafante,
Benincasa, il Boia, questi altipiani fino al bosco di S. Eufemia; a voi
Vizzaro, Paranese, Mariotti le macchie e le montagne che declinano
verso Squillace e verso Stilo; a voi Francatrippa l’Aspromonte e le
foreste di Rosarno. Ciascuno di voi avrà mille piastre per
equipaggiare i suoi uomini. Fuori vi sarà contato il denaro. Ed ora do
a voi la buona novella che il nostro Santo Padre ha mandato la
benedizione alle vostre armi, e dieci anni d’indulgenza per tutti i
vostri peccati.
Fu un delirio. Le grida, gli urli, avevano qualche cosa di selvaggio.
Le mille piastre giungevano opportune, sicchè tutti si affollarono alla
porta per accertarsi coi propri occhi che il denaro fosse lì.
Riccardo intanto si era tenuto in disparte; con le braccia conserte, il
capo ripiegato sul petto, guardava pensoso quella folla di urlanti,
quasi pazzi per la gioia.
Il duca pareva non badasse a lui: uno del seguito aveva attraversato
la folla e gli si era avvicinato per parlargli. Egli si ritrasse in un angolo
col suo familiare e si diede a parlare sottovoce.
— E tu che farai? — chiese Vittoria al giovane.
Questi non rispose: rispose Pietro il Toro in sua vece:
— Che farà? Sarà a capo della più gagliarda banda che avrà fatto
mai alle schioppettate. Io ho già sulle dita cinquanta uomini ognuno
dei quali giuoca con le palle di fucile come se fossero confetti.
— Mi vuoi nella tua banda, dì, mi vuoi? — disse Vittoria sollevando
gli occhi in viso al giovane.
Egli la guardò, poi scosse la testa.
— No — disse — no. Non dispiacerti. So che vali dieci uomini ma
sarebbe un tradire il tuo amico.
— Tu sei più bello, tu sei più forte! — rispose la donna con un lampo
di selvaggia passione negli occhi.
— No. Dividiamoci così come ci siamo incontrati. Vedi, ci è là il tuo
amante che mi aspetta non per vendicarsi dell’averlo io mandato
ruzzoloni, ma delle parole che tu hai detto e dello sguardo che mi hai
rivolto.
— Egli non è più il mio amante, perchè io l’ho tradito.
— L’hai tradito, tu?
— Sì, dicendo a te che sei bello, dicendo a te che sei forte ed
offrendomi a te. Io glielo dirò, e poichè tu non mi vuoi nella tua
banda resterò nella sua, ma non sarò più la sua amante. Resterò
nella sua banda, ma a patto che egli non ti affronti. Lo so, lo
uccideresti perchè tu ci hai del sangue nel tuo sguardo dolce; ma fu
lui il primo che mi fece sentire di esser donna e non voglio che
muoia ucciso da te.
— E a noi non toccherà nulla di quel denaro? — diceva intanto il
Ghiro a Pietro il Toro.
— Sta zitto, sta zitto — rispose questi facendo una smorfia. — Ho di
che consolar te ed il Magaro che se ne sta lì mortificato. Ma non dite
niente a Riccardo perchè non voglio s’immischi in certe faccende.
Mentre andavo in giro per raccogliere questi signori ho saputo che
fra quattro giorni passerà pel Piano del Lago il procaccia che porta i
denari delle truppe francesi. Sarà scortato da venti soldati... Dieci dei
nostri basteranno... Hai capito?
— Ah Pietro, Pietro, che sii benedetto: tu mi letifichi l’anima!
Riccardo ascoltava pensoso la donna: quell’amore che gli si rivelava
ad un tratto, violento e lampeggiante come un fulmine, gli evocava
più angoscioso il ricordo di quella notte, di quella ignota, sulla quale
aveva troppo fidato e che lo aveva esposto a una sì umiliante
smentita! Da chi poi? dal padre di quella creatura che era stata per
tanti anni nei suoi sogni e della quale ora doveva respingere
l’immagine, sentendosi indegno di evocarla!
— Ebbene — disse Vittoria — sì, hai ragione, dividiamoci. Tu ami
un’altra... Non respingeresti una donna come me se il tuo cuore non
fosse gonfio di passione. Promettimi soltanto che se un giorno avrai
bisogno di chi sappia impugnare una carabina e maneggiare un
pugnale, di chi non ha contato mai i nemici nè evitato i pericoli,
fossero pure stati immani, tu mi chiamerai a te vicino onde io
combatta per te! Me lo prometti?
— Te lo prometto — rispose lui.
Ella si raddrizzò, fece uno sforzo e si diresse verso la porta
ingombra da coloro che aspettavano d’esser chiamati per ricevere il
denaro. Ivi giunta si rivolse e gridò al giovane:
— Ricordati!
— Sì, mi ricorderò — rispose lui.
In questa gli si avvicinò Pietro il Toro.
— Dunque siamo liberi? Meglio così. Non voglio sapere perchè noi
che un’ora fa ci credevamo destinati a dominar su tutta quella gente,
ora siamo stati posti in disparte. Dite un po’: ci entrasse per caso lo
zampino di una femmina? Scusate, ma Pietro il Toro può
permettersela questa domanda. Voglio avvertirvi che quando ci entra
lo zampino di una femmina è peggio che se ci entrasse quello del
diavolo. In quanto al duca... oggi o domani dovrà fare i conti con voi
e con me: anche con me! San Francesco di Paola mi ha messo la
mano sulla bocca, altrimenti gliel’avrei detto... quel che presto o tardi
gli dovrò dire... Dunque che facciamo?
Riccardo parve riscuotersi dai suoi pensieri e si raddrizzò
fieramente: strinse alla vita la cinta che sosteneva le pistole e la
spada; poi voltosi a Pietro il Toro:
— Non hai tu detto che cinquanta gagliardi delle vecchie bande che
tu hai visto al fuoco sono disposti a far la guerra sotto i miei ordini?
Ebbene, raccoglili tutti e fra otto giorni voglio vederli armati ed
equipaggiati. Occorre annunziarci con un colpo di mano da
sbalordire tutta questa canaglia che ci sta intorno. Hai inteso?
— Ho inteso — disse Pietro il Toro con gli occhi sfavillanti di gioja.
— Ho trecento piastre per i primi bisogni. Il resto verrà poi. Intanto
andiamo via.
Ciò detto si avvolse nel mantello ed uscì seguito dai suoi amici.
— Ah — diceva Pietro il Toro fregandosi le mani — ecco che il
lupacchiotto si accinge a mostrare i denti. Andiamo, andiamo, che
con quattro parole ho scongiurato la jettatura!

E così scoppiò quella guerra che per cinque anni durò feroce, quella
guerra d’insidie, d’imboscate, di scontri senza tregua e senza
quartiere che costò alla Francia tante giovani e valorose vite, tanta
rovina a noi; che seminò tanti odî, che distrusse tante famiglie, che
sparse il terrore nelle più amene e ricche provincie del Regno,
ammiserendo l’agricoltura, arrestando i traffici, impedendo i
commerci, e che tanto male produsse al nostro nome, divenuto
sinonimo, per gli storici rivoluzionari, di gente barbara ed efferata, e
che continua a produrci, perocchè pur essendo trascorso un secolo,
risentiamo anche oggi gli effetti delle calunnie che si spacciarono sul
nostro conto, poi continuate dalle diverse sette politiche, le quali con
tali calunnie più che vilipendere noi intendevamo vilipendere i
Borboni, ai quali facevano rimontare i nostri vizi e le nostre colpe!
Ma non è nostro compito scrivere diffusamente di quel tragico
periodo che pure non ha ancora avuto uno storico imparziale ed
esatto il quale non si sia fermato soltanto sugli effetti ma abbia
anche indagato le cause che li produssero. Solo vogliam dire che
non fu il Manhes a ridar la pace alle nostre contrade; l’opera di un
solo uomo non sarebbe bastata a tanta impresa, nè la violenza, la
ferocia delle repressioni, l’iniquità han mai fruttato effetti benefici. La
sanguinosa guerra cessò quando s’incominciò a comprendere che il
governo di Gioacchino Murat intendeva davvero al bene delle misere
popolazioni; quando si costruirono strade, quando si promulgarono
provvide leggi, quando si cercò di diffondere l’istruzione, quando
finalmente il Re si mise in contatto diretto coi cittadini che ne
compresero il cuore generoso, ne apprezzarono le virtù guerriere, lo
trovarono affabile e buono; e finì allorchè la vera conduttrice di
quella guerra, Carolina d’Austria, ebbe a combattere con nemici
assai più insidiosi e più nefasti a lei, gl’Inglesi.
Ma ripeto, il nostro compito è ben altro. Ritorniamo quindi al
personaggio principale di questa storia che ebbe tanta parte in quelli
avvenimenti, a Capitan Riccardo.

Fine.
 Nota del Trascrittore

Ortografia e punteggiatura originali sono state

mantenute, correggendo senza annotazione minimi
errori tipografici.
Copertina creata dal trascrittore e posta nel pubblico
dominio.
 *** END OF THE PROJECT GUTENBERG EBOOK S. M. LA
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