欧洲一体化研究欧洲一体化中的新公共管理改革——以欧盟司法与内务领域的超国家政署化为例

New Waves of Public Administration Reforms in the Context of European Integration——with the EU’s Supranational Agencification in the Field of Justice and Internal Affairs as a Case Study

《马斯特里赫特条约》生效后,欧盟在主要机构之外建立了近40个欧盟行政公署,这一政治现象被称为“欧盟政署化”。欧盟公署的建立旨在于联盟层面完成特定任务,包括监督成员国在某一领域履行条约义务,促进成员国之间信息交换,对欧盟立法提供专业技术支持等。在司法与内务领域,欧盟建立了边境署、欧盟警署和欧盟庇护局等九个欧盟公署,这些欧盟公署在情报收集、风险分析、提高成员国行政执法能力和促进跨层级行政合作等领域承担了重要任务。在应对难民危机中,欧盟公署与其他联盟机构和成员国行政机构的合作表明,欧盟公署已经成为欧盟综合治理体系中的重要一环。它既是成员国在司法、边界管理、移民和难民等领域长期合作的产物,也是下一阶段欧盟提升行政治理能力和一体化水平的重要助力。随着欧盟公署行政职权和自由裁量权的逐渐扩大,欧盟得以加强对成员国的监督能力,提升联盟整体的行政司法合作水平。

Since the passage of the Maastricht Treaty,the European Union has established nearly 40 EU agencies outside the main institutional structure,which has been named by the academia as ‘EU agencification’.The agencification of the EU is intended to conduct specific tasks at the European level,including overseeing the Member States' fulfillment of treaty obligations,facilitating the exchange of information,and providing professional technical support to EU legislation.In the field of Justice and Home Affairs,the European Union has established nine such agencies,including the European Border and Coast Guard,the European Union Agency for Law Enforcement Cooperation,the European Asylum Support Office,and etc.These agencies undertake important tasks such as intelligence gathering,risk analysis,improving administrative enforcement capabilities,and promoting cross-level administrative cooperation.In the recent refugee crisis,interagency networks and cooperation with other European institutions and Member States' authorities have shown that the European agencies have become an important part of the European governance regime.From a historical perspective,the European agencies are the product of long-term intergovernmental cooperation in the fields of justice,border,migration and asylum and will act as a significant driving force for furthering European administrative integration.With the gradual expansion of the European agencies,the EU has been able to strengthen its ability to regulate member states and improve the overall level of administrative and judicial cooperation.