超越发展援助:欧盟的萨赫勒战略调整

Beyond the Development Aid:The Transformation of EU’s Strategy towards the Sahel Region

欧盟于2011年出台萨赫勒战略,试图运用综合方式介入萨赫勒地区事务,将欧洲的安全边界向萨赫勒地区拓展,并彰显欧盟在非洲的影响力。然而,该战略对安全的过度关注使欧盟未能有效平衡不同政策工具,综合方式呈现明显的“安全化”特征。军事安全手段的运用虽然在一定程度上遏制了移民、难民经萨赫勒地区向欧洲的流动,但并没有使萨赫勒地区变得更加安全;相反,军事政变频发、恐怖主义扩散、暴力冲突加剧折射出萨赫勒地区依然面临严峻的安全形势。在对萨赫勒地区局势进行分析和对过去十年经验教训进行总结基础上,欧盟于2021年出台新版萨赫勒战略,突出强调要在运用综合方式时聚焦于政治和治理,以破解萨赫勒地区暴力冲突的深层根源。从政策叙事层面看,欧盟的萨赫勒战略呈现以治理为中心的转型。但在实践层面看,面对乌克兰危机延宕和大国博弈加剧,欧盟更加强调战略自主的重要性,其对萨赫勒地区事务的介入也体现出明显的大国竞争和地缘政治色彩。欧盟的零和思维使其难以成为萨赫勒地区挑战的解决者,反而会成为萨赫勒地区问题的一部分。

With the entry into force of the Lisbon Treaty and the establishment of the European External Action Service,the EU introduced the Sahel Strategy in 2011,attempting to use a comprehensive approach to intervene the internal affairs of the Sahel region,expanding Europe’s security borders to the Sahel region,and increasing the EU’s influence in Africa.However,the excessive focus on security,especially the short-term goal of curbing immigration and refugees,has prevented tire EU from effectively balancing different policy tools,and the EU’s comprehensive approach exhibits a elear“securitization”characteristic.Although the use of military security measures has to some extent curbed the flow of refugees to Europe through the Sahel region,it has not made the Sahel region more secure.On the contrary,the frequent occurrence of military coups,the spread of terrorism,and the intensification of violent conflicts reflect that the Sahel region still faces a severe security situation.On the basis of analyzing the situation in the Sahel region and summarizing the experiences and lessons learned from the past decade,the EU introduced a new version of the Sahel Strategy in 2021,emphasizing the need to focus on governance when applying an integrated approach to address the root causes of conflicts in the Sahel region.From the perspective of policy narrative,the EU’s Sahel strategy presents a transformation centered on governance.However,from a practical perspective,in the face of the prolonged Ukraine crisis and the intensification of power politics,the EU emphasizes the importance of strategic autonomy,and its intervention in the internal affairs of the Sahel region reflects a clear geopolitical competition among major powers.The zero-sum thinking of the EU makes it difficult to be a solver of the Sahel’s challenges,but rather a part of the problems there.