多层级治理—政治系统理论视角下的欧盟难民政策研究——以两次难民问题为例
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摘要
20世纪90年代,东欧剧变引发西欧难民潮,欧洲共同体出台了一系列较为有效的难民政策。2015年以来,中东北非的大批难民涌入,导致欧盟再次爆发难民危机,其难民政策却未能取得显著效果。对比两次难民问题及欧盟决策过程的异同,发现当下难民问题未能妥善解决的原因是:此次制定难民政策的决策主体较前次更多元,除欧盟及其成员国外,还有次国家层级和跨国家层级的行为体;行为体的增加直接导致决策流程更为烦冗,决策过程中"输入—输出—反馈"的循环次数增多;从冷战结束到全球化时代,难民问题所处的决策环境更为复杂。若要有效应对此次难民问题,欧盟还需促进各层级的良性互动、妥善安置及遣返境内难民、加强与联盟外第三国的合作等。
In the 1990 s,the drastic changes in Eastern Europe caused a sudden influx of refugees into western Europe. The EU at that time implemented a series of effective refugee policies.Since 2015,a large amount of refugees from the Middle-East and North Africa have entered the EU,which has led to the so-called refugee crisis. However,the common refugee policy taken by the EU has not achieved such effect as expected. Comparing the differences in the two waves of refugee inflow and in the EU's decision-making process,we find that the reasons why the current refugee crisis has not been resolved as smoothly as the former lie in a range of complicated factors including,in particular,the more diversified composition of the actors engaged in the decision making process,the more complicated decisionmaking process and the complex environment surrounding the decision on refugee issues. To address the refugee issue effectively,it is necessary for the EU to promote positive interactive relationships among multi-level actors in EU,settle or repatriate the refugees properly and enhance cooperation with the third countries outside EU.
In the 1990 s,the drastic changes in Eastern Europe caused a sudden influx of refugees into western Europe. The EU at that time implemented a series of effective refugee policies.Since 2015,a large amount of refugees from the Middle-East and North Africa have entered the EU,which has led to the so-called refugee crisis. However,the common refugee policy taken by the EU has not achieved such effect as expected. Comparing the differences in the two waves of refugee inflow and in the EU's decision-making process,we find that the reasons why the current refugee crisis has not been resolved as smoothly as the former lie in a range of complicated factors including,in particular,the more diversified composition of the actors engaged in the decision making process,the more complicated decisionmaking process and the complex environment surrounding the decision on refugee issues. To address the refugee issue effectively,it is necessary for the EU to promote positive interactive relationships among multi-level actors in EU,settle or repatriate the refugees properly and enhance cooperation with the third countries outside EU.
引文
(1)郑春荣:《欧盟难民问题难解的原因与影响》,载《当代世界》,2018年第9期,第20页。
(2)张久安:《欧洲难民危机:历史、成因及其全球影响》,载《思想政治课教学》,2015年第11期,第50页。
(3)甘开鹏:《二战后国际难民政策的历史演变》,载《海南师范大学学报(社会科学版)》,2010年第5期,第134页。
(4)Sandra Lavenex, “EU Enlargement and the Challenge of Policy Transfer: the Case of Refugee Policy,” Journal of Ethnic and Migration Studies, Vol.28,No.4,2002,pp.701-721.
(5)梁茂信:《现代欧美移民与民族多元化研究》,辽宁大学出版社2011年版,第85页。
(6)Kay Hailbronner, Comparative Law of Asylum and Immigration in Europe, Bundesanzeiger Koin,1992, p.31.
(7)甘开鹏:《欧盟共同难民政策研究(1957-2007)》,厦门大学出版社2011年版,第56页。
(8)Elspeth Guild, The Developing Immigration and Asylum Policies of the European Union, Brill Academic Publishers, 1996, pp.89-99.
(9)Liza Schuster,“A Comparative Analysis of the Asylum Policy of Seven European Governments,” Journal of Refugee Studie, Vol.13,No.1, 2000, pp.118-132.
(10)Imelda Higgins and Kay Hailbronner, Migration and Asylum Law and Policy in the European Union: FIDE 2004 National Reports, Cambridge University Press, 2004, pp.73-74.
(11)林勋建:《政党与欧洲一体化》,当代世界出版社2000年版,第35页。
(12)宋全成:《欧洲难民危机:结构、成因及影响分析》,载《德国研究》,2015年第3期,第41-53页。
(13)Michelle Foster, International Refugee Law and Socio-Economic Rights-Refuge from Deprivation, Cambridge University Press, 2007, p.28.
(14)Lambert Helene, Seeking Asylum: Comparative Law and Practice in Selected European Countries, M.Nijhoff,1995,pp.28-30.
(15)付义强:《西欧主要国家移民政策的发展与演变——以德、法、英三国为例》,载《上海商学院学报》,2009年第5期,第58-67页。
(16)Stephen Satris, Taking Sides: Clashing Views on Controversial Moral Issues, McGraw-Hill, 2004, pp.250-259.
(17)唐艋:《德国难民政策的历史与现状》,载《德国研究》,2015年第2期,第45-57页。
(18)Selanec. Nika Ba, “A Critique of EU Refugee Crisis Management: on Law, Policy and Decentralization”, Croatian Yearbook of European Law & Policy, Vol.11, 2015, pp.73-114.
(19)Maricut Adina, “Different Narratives, one Area Without Internal Frontiers: Why EU Institutions Cannot Agree on the Refugee Crisis,” National Identities, Vol.19, No.2, 2017, pp.161-177.
(20)伍慧萍:《欧洲难民危机中德国的应对与政策调整》,载《山东大学学报》(哲学社会科学版),2016年第2期,第1-8页。
(21)张亚宁:《欧盟的非正式治理模式刍议——以欧盟共同难民政策的发展为例》,载《欧洲研究》,2015年第6期,第76-96页。
(22)陈蔚芳:《共同体化的困境——从叙利亚难民危机论欧盟共同庇护体系的局限性》,载《欧洲研究》,2016年第6期,第72-94页。
(23)Jen Niessen,“International Migration on the EU Foreign Policy Agenda,” European Journal of Migration and Law,No.1, 2000, pp.490-492.
(24)Gary Marks et al., “Competencies, Cracks and Conflicts: Regional Mobilization in the European Union,” Comparative Political Studies, Vol.29, No.2, 1996,p.167.
(25)[德]贝娅特·科勒-科赫:《欧洲一体化与欧盟治理》,顾俊礼译,中国社会科学出版社2004年版,第168页。
(26)Markus Jachtenfuchs, “The Governance Approach to European Integration,” Journal of Common Market Studies, Vol.39, No.2, 2001, pp.253-255.
(27)Gary Marks, “Structural Policy and Multi-level Governance in the EC,” in A. Cafruny and G. Rosenthal, eds., The State of the European Community: The Maastricht Debate and Beyond, Lynme Rienner Publishers Inc., 1993, pp.391-411.
(28)Marks Hooghe,“Unraveling the Central State, but How? Types of Multi-governance,” American Politics Science Review, Vol.96, No.6, 2003, pp.233-235.
(29)吴志成:《治理创新——欧洲治理的历史、理论与实践》,天津人民出版社2003年版,第387页。
(30)Gary Marks, Liesbet Hooghe and Kermit Blank, “European Integration from the 1980s: State-Centric V. Multi-Level Governance,” Journal of Common Market Studies, Vol.34, No.3, 1996, p.346.
(31)David Easton, A Systems Analysis of Political Life, John Wiley, 1965, p.58.
(32)尹冬华:《公民网络参与:新政治系统理论的分析框架》,载《中共天津市委党校学报》,2010年第2期,第44页。
(33)[美]加布里埃尔·A·阿尔蒙德、[美]小G·宾厄姆·鲍威尔:《比较政治学:体系、过程和政策》,曹沛霖等译,上海译文出版社1987年版。
(34)王浦劬:《一般政治系统理论基本特点刍议》,载《科学决策》,2010年第8期,第2-3页。
(35)程同顺、邢西敬:《从政治系统论认识国家治理现代化》,载《行政论坛》,2017年第3期,第19页。
(36)张萍:《国际政治系统中的外交:过程与基本形态——一个政治传播学的分析框架》,载《国际关系研究》,2017年第5期,第3-19页。
(37)王浦劬:《一般政治系统理论基本特点刍议》,第4页。
(38)徐静:《欧盟多层次治理与欧盟决策过程》,上海交通大学出版社2015年版,第56页。
(39)《马斯特里赫特条约》(欧洲联盟条约):第六篇K.1条,http://code.fabao365.com/law_29461_1.html,2018年8月19日访问。
(40)“European Agenda on Migration(13/05/2015),” https://ec.europa.eu/home-affairs/what-we-do/policies/european-agenda-migration/background-information_en, last accessed on 20 August 2018.
(41)European Commission,“EU Action Plan Against Migrant Smuggling,” https://ec.europa.eu/anti-trafficking/eu-policy/eu-action-plan-against-migrant-smuggling-2015-%E2%80%93-2020_en , last accessed on 4 Mar. 2019.
(42)房乐宪、江诗琪:《当前欧盟应对难民危机的态势与挑战》,载《同济大学学报(社会科学版)》,2016年第2期,第32页。
(43)“Managing the refugee crisis(15/12/2015) ,” https://ec.europa.eu/home-affairs/what-we-do/policies/european- agenda-migration/background-information_en, last accessed on 20 August 2018.
(44)《联合国难民署图尔克阐释〈全球难民契约〉》, 2018年8月30日,https://www.unhcr.org/cn/11937-%E8%81%94%E5%90%88%E5%9B%BD%E9%9A%BE%E6%B0%91%E7%BD%B2%E5%9B%BE%E5%B0%94%E5%85%8B%E9%98%90%E9%87%8A%E3%80%8A%E5%85%A8%E7%90%83%E9%9A%BE%E6%B0%91%E5%A5%91%E7%BA%A6%E3%80%8B.html,2019年2月4日访问。
(45)刘文秀、[英]埃米尔·J·科什纳:《欧洲联盟政策及政策过程研究》,法律出版社2003年版,第90页。
(46)Stephen Castles, Ethnicity and Globalization, SAGE Publications Ltd., 2000, p.187.
(47)《16万难民转移安置成难题摊派各国使欧盟内部再分裂》,财新网,2017年7月28日,http://international.caixin.com/2017-07-28/101123169.html,2018年3月1日访问。
(48)European Commission, “Joint Consultation Paper: Towards a New Neighborhood Policy,” Brussels March 4, 2015;金玲:《难民危机背景下欧盟周边治理困境及其务实调整》,载《当代世界与社会主义》,2016年第6期,第23页。
(49)尹玥:《难民问题:欧非合作路还很长》,载《人民日报海外版》,2015年11月14日,第03版。
(50)《综述:欧盟峰会强调团结合作应对内外挑战》,新华网,2017年2月4日,http://www.xinhuanet.com/world/2017-02/04/c_1120408391.htm,2018年3月1日访问。
(51)《马耳他释放9名马里移民并计划将其遣返》,新华网,2017年2月15日,http://www.xinhuanet.com/world/2017-02/15/c_1120469817.htm,2018年3月1日访问。
(52)麦可欣:《欧盟考虑境外设立“审核中心”就地拦截非法移民》,载《联合早报》,2018年6月20日。
(2)张久安:《欧洲难民危机:历史、成因及其全球影响》,载《思想政治课教学》,2015年第11期,第50页。
(3)甘开鹏:《二战后国际难民政策的历史演变》,载《海南师范大学学报(社会科学版)》,2010年第5期,第134页。
(4)Sandra Lavenex, “EU Enlargement and the Challenge of Policy Transfer: the Case of Refugee Policy,” Journal of Ethnic and Migration Studies, Vol.28,No.4,2002,pp.701-721.
(5)梁茂信:《现代欧美移民与民族多元化研究》,辽宁大学出版社2011年版,第85页。
(6)Kay Hailbronner, Comparative Law of Asylum and Immigration in Europe, Bundesanzeiger Koin,1992, p.31.
(7)甘开鹏:《欧盟共同难民政策研究(1957-2007)》,厦门大学出版社2011年版,第56页。
(8)Elspeth Guild, The Developing Immigration and Asylum Policies of the European Union, Brill Academic Publishers, 1996, pp.89-99.
(9)Liza Schuster,“A Comparative Analysis of the Asylum Policy of Seven European Governments,” Journal of Refugee Studie, Vol.13,No.1, 2000, pp.118-132.
(10)Imelda Higgins and Kay Hailbronner, Migration and Asylum Law and Policy in the European Union: FIDE 2004 National Reports, Cambridge University Press, 2004, pp.73-74.
(11)林勋建:《政党与欧洲一体化》,当代世界出版社2000年版,第35页。
(12)宋全成:《欧洲难民危机:结构、成因及影响分析》,载《德国研究》,2015年第3期,第41-53页。
(13)Michelle Foster, International Refugee Law and Socio-Economic Rights-Refuge from Deprivation, Cambridge University Press, 2007, p.28.
(14)Lambert Helene, Seeking Asylum: Comparative Law and Practice in Selected European Countries, M.Nijhoff,1995,pp.28-30.
(15)付义强:《西欧主要国家移民政策的发展与演变——以德、法、英三国为例》,载《上海商学院学报》,2009年第5期,第58-67页。
(16)Stephen Satris, Taking Sides: Clashing Views on Controversial Moral Issues, McGraw-Hill, 2004, pp.250-259.
(17)唐艋:《德国难民政策的历史与现状》,载《德国研究》,2015年第2期,第45-57页。
(18)Selanec. Nika Ba, “A Critique of EU Refugee Crisis Management: on Law, Policy and Decentralization”, Croatian Yearbook of European Law & Policy, Vol.11, 2015, pp.73-114.
(19)Maricut Adina, “Different Narratives, one Area Without Internal Frontiers: Why EU Institutions Cannot Agree on the Refugee Crisis,” National Identities, Vol.19, No.2, 2017, pp.161-177.
(20)伍慧萍:《欧洲难民危机中德国的应对与政策调整》,载《山东大学学报》(哲学社会科学版),2016年第2期,第1-8页。
(21)张亚宁:《欧盟的非正式治理模式刍议——以欧盟共同难民政策的发展为例》,载《欧洲研究》,2015年第6期,第76-96页。
(22)陈蔚芳:《共同体化的困境——从叙利亚难民危机论欧盟共同庇护体系的局限性》,载《欧洲研究》,2016年第6期,第72-94页。
(23)Jen Niessen,“International Migration on the EU Foreign Policy Agenda,” European Journal of Migration and Law,No.1, 2000, pp.490-492.
(24)Gary Marks et al., “Competencies, Cracks and Conflicts: Regional Mobilization in the European Union,” Comparative Political Studies, Vol.29, No.2, 1996,p.167.
(25)[德]贝娅特·科勒-科赫:《欧洲一体化与欧盟治理》,顾俊礼译,中国社会科学出版社2004年版,第168页。
(26)Markus Jachtenfuchs, “The Governance Approach to European Integration,” Journal of Common Market Studies, Vol.39, No.2, 2001, pp.253-255.
(27)Gary Marks, “Structural Policy and Multi-level Governance in the EC,” in A. Cafruny and G. Rosenthal, eds., The State of the European Community: The Maastricht Debate and Beyond, Lynme Rienner Publishers Inc., 1993, pp.391-411.
(28)Marks Hooghe,“Unraveling the Central State, but How? Types of Multi-governance,” American Politics Science Review, Vol.96, No.6, 2003, pp.233-235.
(29)吴志成:《治理创新——欧洲治理的历史、理论与实践》,天津人民出版社2003年版,第387页。
(30)Gary Marks, Liesbet Hooghe and Kermit Blank, “European Integration from the 1980s: State-Centric V. Multi-Level Governance,” Journal of Common Market Studies, Vol.34, No.3, 1996, p.346.
(31)David Easton, A Systems Analysis of Political Life, John Wiley, 1965, p.58.
(32)尹冬华:《公民网络参与:新政治系统理论的分析框架》,载《中共天津市委党校学报》,2010年第2期,第44页。
(33)[美]加布里埃尔·A·阿尔蒙德、[美]小G·宾厄姆·鲍威尔:《比较政治学:体系、过程和政策》,曹沛霖等译,上海译文出版社1987年版。
(34)王浦劬:《一般政治系统理论基本特点刍议》,载《科学决策》,2010年第8期,第2-3页。
(35)程同顺、邢西敬:《从政治系统论认识国家治理现代化》,载《行政论坛》,2017年第3期,第19页。
(36)张萍:《国际政治系统中的外交:过程与基本形态——一个政治传播学的分析框架》,载《国际关系研究》,2017年第5期,第3-19页。
(37)王浦劬:《一般政治系统理论基本特点刍议》,第4页。
(38)徐静:《欧盟多层次治理与欧盟决策过程》,上海交通大学出版社2015年版,第56页。
(39)《马斯特里赫特条约》(欧洲联盟条约):第六篇K.1条,http://code.fabao365.com/law_29461_1.html,2018年8月19日访问。
(40)“European Agenda on Migration(13/05/2015),” https://ec.europa.eu/home-affairs/what-we-do/policies/european-agenda-migration/background-information_en, last accessed on 20 August 2018.
(41)European Commission,“EU Action Plan Against Migrant Smuggling,” https://ec.europa.eu/anti-trafficking/eu-policy/eu-action-plan-against-migrant-smuggling-2015-%E2%80%93-2020_en , last accessed on 4 Mar. 2019.
(42)房乐宪、江诗琪:《当前欧盟应对难民危机的态势与挑战》,载《同济大学学报(社会科学版)》,2016年第2期,第32页。
(43)“Managing the refugee crisis(15/12/2015) ,” https://ec.europa.eu/home-affairs/what-we-do/policies/european- agenda-migration/background-information_en, last accessed on 20 August 2018.
(44)《联合国难民署图尔克阐释〈全球难民契约〉》, 2018年8月30日,https://www.unhcr.org/cn/11937-%E8%81%94%E5%90%88%E5%9B%BD%E9%9A%BE%E6%B0%91%E7%BD%B2%E5%9B%BE%E5%B0%94%E5%85%8B%E9%98%90%E9%87%8A%E3%80%8A%E5%85%A8%E7%90%83%E9%9A%BE%E6%B0%91%E5%A5%91%E7%BA%A6%E3%80%8B.html,2019年2月4日访问。
(45)刘文秀、[英]埃米尔·J·科什纳:《欧洲联盟政策及政策过程研究》,法律出版社2003年版,第90页。
(46)Stephen Castles, Ethnicity and Globalization, SAGE Publications Ltd., 2000, p.187.
(47)《16万难民转移安置成难题摊派各国使欧盟内部再分裂》,财新网,2017年7月28日,http://international.caixin.com/2017-07-28/101123169.html,2018年3月1日访问。
(48)European Commission, “Joint Consultation Paper: Towards a New Neighborhood Policy,” Brussels March 4, 2015;金玲:《难民危机背景下欧盟周边治理困境及其务实调整》,载《当代世界与社会主义》,2016年第6期,第23页。
(49)尹玥:《难民问题:欧非合作路还很长》,载《人民日报海外版》,2015年11月14日,第03版。
(50)《综述:欧盟峰会强调团结合作应对内外挑战》,新华网,2017年2月4日,http://www.xinhuanet.com/world/2017-02/04/c_1120408391.htm,2018年3月1日访问。
(51)《马耳他释放9名马里移民并计划将其遣返》,新华网,2017年2月15日,http://www.xinhuanet.com/world/2017-02/15/c_1120469817.htm,2018年3月1日访问。
(52)麦可欣:《欧盟考虑境外设立“审核中心”就地拦截非法移民》,载《联合早报》,2018年6月20日。