多层治理：欧洲联盟正在成型的新型民主模式

Multilevel Governance:A Newly Emerging Mode of Democracy in EU

欧洲联盟(以下简称"欧盟")多层治理是欧洲一体化、成员国国内地区化和欧盟市民社会发展的结果。超国家、国家和次国家行为体共同参与欧盟政策制定或执行,各行为体大体上地位平等、互不隶属,协商制定欧盟政策。根据政治系统理论,多层治理的目的在于实现国家与社会、公共领域与私人领域的良性互动,弥补了全球化时代政府管理公共事务能力的不足与市场分配社会价值的缺陷;提高了民众的政治参与,体现了协商民主的精神,是对代议民主的补充与超越,有利于欧盟合法性的重构。同时,由于欧盟至少在宪政秩序、地理范围、制度平衡与功能范围等方面还未定型,多层治理还是一种正在发育成型的民主模式。

The EU multilevel governance is the result of European integration, the regionalization and the emergence of the civil society of Europe. Supranational, national and subnational entities have taken part in the policy-making process of the EU jointly, each entity has an equal position, and the policy-making is through deliberation. According to David Easton’s system theory, the objective of EU multilevel governance is to realize sound interactions between state and society as well as between public and private fields. Multilevel governance reflects the nature of deliberative democracy, which improves the European citizens’ participation in EU politics and complements the capability deficiencies of government and market in the global era. It also complements and surpasses the representative democracy, which would contribute to the reconstruction of EU legitimacy. Meanwhile, as constitutional politics, geographic range, institutional balance and functional scope in EU are not finalized, multilevel governance is still an emerging mode of democracy.