欧盟行政决策权分配的“名实分离”:模式、成因与影响  

The Separation between Names and Facts in the Distribution of EU Executive Decision-making Power: Patterns,Causes and Consequences

作　　者：杨国栋 YANG Guodong

机构地区：[1]西南政法大学行政法学院

出　　处：《欧洲研究》2018年第4期48-65,156,共19页Chinese Journal of European Studies

摘　　要：一体化的深入推动着"欧盟政府"的架构日渐成形,但欧盟层面行政决策权的行使机构仍然是一个需要明确的问题。《里斯本条约》对欧盟委员会"行使行政管理职能"和欧洲理事会"确定政治方向"的规定非但没有给出答案,反而使其更为扑朔迷离。事实上,在欧盟层面的机构运作中已形成了欧委会和欧洲理事会以共享政策动议权为基础的行政决策模式:欧洲理事会行使着欧盟的行政决策权力,欧委会则逐渐演变为欧洲理事会的秘书处和执行机构。由于欧盟内部民主合法性和政治权威主要来自成员国,这种不同于条约文本规定的行政决策模式具有一定意义上的合理性,但其结果是行政权在欧盟和成员国两个层面都得到实质性扩大,对行政权的民主控制和监督也被弱化。此外,该模式更进一步产生了欧委会的角色异化和小成员国被边缘化却无法得到制度救济的问题,从而对欧洲一体化的深化形成障碍。从根本上而言,这种名实之间的紧张关系是成员国对一体化的承诺与对一体化深度的接受度之间形成张力的结果。The deepening integration of the European Union is promoting the structure-framing of an“EU Government”.However,the exerciser of the executive power in the EU remains to be clarified.The rules set down in the Lisbon Treaty,which entrust the Commission with“administrative function”and the European Council with the task of“deciding political directions”,have made this problem even more ambiguous instead of providing clear answers.In practice,an executive decision-making pattern has been gradually formulated where the Commission and the European Council share the power to initiate policies.This pattern,different from the written rules though,appears to be reasonable to the extent that the democratic legitimacy and the political authority lie within the hands of the Member States.However,this pattern has resulted in the undermining of democratic control and supervision in that it leads to the expanding of executive powers both at the national and European levels.Further,this model has raised a series of other problems,such as the alienated role of the Commission,the marginalization of small Member States without efficient institutional remedies,which thus constitute potential threats to further integration.It is pointed out in the final part of this paper that the tensions between the names and the facts is in nature a result of the tensions between the commitments of the Member States towards integration and their practical tolerance to the integration project.

关 键 词：欧盟 行政决策权 动议权 理性选择 名实分离 

分 类 号：D95[政治法律—法学] DD911