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

A Study on the EU's Refugee Policy from the Perspective of Multi-Level Political System Theory——with Two Waves of Refugee Influxes as Examples

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 1990s,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 decision-making 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.