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유럽연합 규제기구의 기능과 정체성 변화: 정부간 네트워크에서 초국가 행위자로의 발전

Changes in Function and Identity of EU's Regulatory Agencies: Transition to the Supranational Actors beyond on Intergovernmental Network

송병준
EU연구소 (Institute for European Union Studies)|2020.06|EU연구 (Journal of European Union Studies)|제55호|pp. 87-118|DOI 10.18109/jeus.2020..55.87

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이사회European Commission규제기구유럽위원회Europol유럽경찰국자유안전사법지대Council of the European Union Regulatory AgenciesArea of FreedomSecurity and Justice
주제분류지역학

초록

규제기구는 유럽연합 거버넌스의 대리인화(agencification)로서 회원국의 이해구현을 위한 정부간 네트워크 형태로 출발하였지만 이사회를 위시한 외부기구로부터 직접적 개입과 간섭을 받지 않는 독립적 기구로 발전하고 있다. 회원국은 비대해진 유럽관료(Eurocrat)의 권한과 기능적 필요에 의해 유럽연합 차원에서 독립적인 정부간 기구 설립을 주도하였지만 시간이 경과하면서 당초의 의도와는 또 다른 방향으로 규제기구의 성격이 변화하고 있다. 일부 시장규제 감독 기능을 갖는 기구는 메로니 독트린(Meroni doctrine)을 넘어 미국의 규제기관과 유사하게 독립적인 기능을 갖는 기구로 발전하고 있다. 규제기구의 성격변화는 업무의 전문성 고양, 유럽위원회와의 수평적 협력, 유럽의회의 개입 그리고 메로니 독트린의 법률적 효력의 희석 등 여러 요인이 복합적으로 작용한 결과이다. 이러한 발전과정은 주인-대리인(principal-agent) 관계에서 기능적 필요에 기인하여 주인으로서 회원국의 통제를 벗어나 대리인인 규제기구의 자율성 확대로 이해 할 수 있다. 특별히 자유안전사법지대(AFSJ: Area of Freedom, Security and Justice) 분야의 규제기구의 자율성 확대는 다원적 주인(multi-principal)이 갖는 맹점과 대리인의 독단적인 역량 확대가 또 다른 요인으로 작용하였다.

Abstract

Regulatory agencies have been operated as an intergovernmental network to realize the interests of member states as the agencification of EU governance, however, they are developing into independent organizations which are not directly intervened or interfered by external organizations such as the Council of the EU. Also, member states have led to the establishment of independent intergovernmental organizations at the EU level due to their functional needs, but as time passes, the nature of regulatory agencies is changing in a different direction from the initial intention. As a result, some regulatory and observatory agencies are moving beyond Meroni doctrine in order to develop an independent functioning body similar to the US regulatory agencies. And multiple factors such as enhanced expertise of regulatory bodies, horizontal cooperation with the European Commission, interventions ofEuropean Parliament, and changes in Meroni doctrine led to the changes in regulatory agencies. This development process can be understood by expanding the autonomy of regulatory agencies as an agent beyond the control of member states due to functional needs in the principal-agent relationship. In particular, the autonomy of regulatory agencies in the AFSJ can be resulted from the weak spots of multi-principal and the increased capacity of agents.

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