EU의 통상정책에 나타난 지역간주의에 대한 비교연구
Comparative Analysis of EU’s Trade Policy in the context of the Interregionalism
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이 연구는 지역간주의(interregionalism)를 연구함에 있어 EU가 통상정책을 위해 지역 대 지역 차원의 FTA를 추진한 사례를 살펴보았다. 비교연구를 아프리카⋅카리브⋅ 태평양(ACP) 지역의 하부단위 공동체와 ASEAN, MERCOSUR를 대상으로 EU가 추진한 FTA 협상의 동기와 결과를 분석하였다. EU는 ACP와 경제동반자협정(EPA)를 추진하는데 있어 ACP 지역을 지역 내의 공동체를 기준으로 7개 그룹으로 구분하여 협상을 진행하였다. 지역공동체를 통한 협상이부진하자, EU는 기존의 EPA를 한 단계 낮춰, 상품무역에 한정된 기초협정을 추진하였다. 그래도 협상이 부진할 경우에는 지역 내 선도국가와 먼저 지역-개별 국가 형식의EPA를 체결하였다. 대ASEAN 통상정책에 있어 EU는 ASEAN과 지역공동체 간 FTA 를 추진하였다. 반면에 ASEAN 회원국 간 상이한 입장차이와 합의도출 기능의 부재를확인한 이후에는 ASEAN 개별 회원국과 FTA를 추진하는 방향으로 선회하였다. EU는MERCOSUR와 1999년부터 지역공동체간 FTA 협상을 추진했다. MERCOSUR가 관세동맹이라는 점에서 협상은 낙관론 속에서 출발하였으나, MERCOSUR 회원국의 경제위기, 역내통합의 정체 등으로 인해 양측은 2004년에 협상을 잠정 중단하였다. EU-MERCOSUR 간의 FTA 협상은 6년 후에야 재개되었다. EU는 대외협상에 있어 지역간주의를 선호하며 지역공동체 간의 협상 방식은 EU의규범적, 실제적 이익에 부합한다. 반면에, 통상정책의 경우 지역간주의 방식이 작동하지 않고 다른 국가와의 경쟁압력이 있을 경우, EU는 지역간주의의 원칙을 포기하고, 개별 국가와 협상을 개시했다. 이러한 EU의 행보는 적어도 통상정책에 있어서 EU는시장접근성 확보, EU 규범체제의 확산 등 실리획득에 우선순위를 두며, 지역간주의를통한 협상방식은 이를 위한 도구임을 시사한다.
Abstract
This study reviews EU’s free trade agreements (FTA) with regional organizations in order to examine how the interregionalism functions in trade policy. With a view to comparative study, this paper examines EU’s FTA negotiations with African, Caribbean, Pacific (ACP) region, ASEAN and MERCOSUR. In regard to the trade relations with the ACP countries, the EU launched negotiations for establishing Economic Partnership Agreements (EPA) with seven different regional organizations in the ACP region. However, facing the slow progress in negotiation, the EU lowered its initial ambition from comprehensive EPAs to a stepping stone agreement, that is an FTA limited in trade in goods. When the ‘region to region’ approach did not work during the negotiations, the EU turned to a bilateral format (EU-one ACP country) with most prepared countries in the ACP. For trade policy to the ASEAN, the EU tried to launch a trade negotiation to create a region-to-region FTA. However, the inter-regional negotiation with ASEAN did not progressed as planned due to the divergences in level of ambition and disparities in economic development within the ASEAN. The EU discarded the negotiations and engaged talks with those individual ASEAN countries sharing a similar level of ambition with the EU. As for the trade relation with the MERCOSUR, the EU entered into FTA negotiations with the MERCOSUR as a regional group from 1999 with optimistic perspective, because the both parties are customs unions. However, the internal situations in the MERCOSUR, such as the economic crisis in Argentina and Brazil and the loss of integration momentum in the MERCOSUR dragged down the negotiations, which were finally suspended in 2004. Both parties resumed the negotiations six years later in a different context. Without doubt, the EU preferred to external relations based on inter-regional approach, because this format of relations meet normative and real interests of the EU in international system. However, this argument is not supported by the evidences in trade issues. The EU used to explore actively bilateral approach (EU-one country in other regions), when the interregionalism does not seem to provide expected outcomes. Trade policy is typical example in this regard. These evidences suggest that the interregionalism is not absolute principle of the EU and it is rather flexible instrument to acquire EU’s objectives, such as market access and spreading EU-based regulatory framework over the world.
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