EU 예산의 역할과 구성을 둘러싼 논쟁과 협상: 다년도재정운용계획(MFF)의 사례
Negotiations on the EU Budget and Debates on its Role: Case of the Multiannual Financial Framework(MFF)
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초록
EU 예산에 관한 고찰은 정치･경제통합체로써의 EU의 현황과 발전방향에 관한 논의와 밀접한 관련이 있다. 이 연구는 유럽연합(EU) 예산의 구성과 결정방식을 살펴보고 예산편성에 관한 이해당사자들의 입장과 갈등이 어떻게 표출, 절충되는지를 다년도재정운영계획(MFF) 협상을 통해 분석하였다. EU의 예산은 일반적인 연방국가의 예산에 비해규모가 매우 작으며, 예산운영에는 균형재정의 원칙이 철저하게 적용된다. 또한 EU의 예산은 회원국의 기여금으로 운영되는 바, 예산형성의 전 과정이 회원국 간 협상에 의해좌우된다. 2014-2020년의 MFF는 긴축정책과 장기불황의 불리한 여건에서 논의가 진행되었다. 농업과 결속정책 예산이 감소하면서 EU 예산은 출범이후 최초로 감소하였고, 이 과정에서 전통적인 순기여국-순수혜국 간의 이분법적인 갈등관계가 재현되었다. 2021-27년 예산의 경우 경기확장기에 논의가 진행되었으나, 영국의 EU 탈퇴가 확정된 상황에서 예산유지에 대한 부담과 회원국 간 역학관계의 변화가 동시에 나타났다. 이 과정에서도 순기여국-순수혜국 간 갈등이 재현되었으나, 전기 MFF에 비해 예산의 증액이 이루어졌고, EU 집행위원회는 자체재원을 증액하기 위해 환경관련 EU세의 신설을 도모했다. 예산협상의 후반기에 발생한 코로나19 사태로 인해 회복기금의 설립이 이루어졌고, 이를 통해일시적이나마 EU 예산이 대폭 확대되었다. 코로나19 사태로 인한 피해가 공공보건 외에 경제적 성격이라는 점을 감안할 때, MFF 와 연계된 회복기금은 경기안정화에도 기여할 것으로 예상된다. 이 예산의 집행이 일시적인 성과를 끝으로 종료될 수도 있으나, 집행과정에서 나타난 EU 기관 간, 회원국 간역학관계에 따라 EU 예산에 새로운 역할을 부여할 수도 있을 것으로 보인다.
Abstract
This article reviews main discussions over the EU budget from the historical perspective and its current state. It focuses on how main stakeholders (EU institutions and the Member States) reach a compromise in the EU’s Multiannual Financial Framework (MFF) negotiations. The EU’s budget is different from the budgets of national governments as follows; it is subject to a strict annual balanced budget rule with no possibility of generating deficit. Its size is a little more than 1% of the EU’s GNI, which is very small compared to the ordinary budget size of any national governments. In addition, the EU budget consists mostly of the contributions from the Member States, and the entire process of budget negotiation tends to be dictated by compromises between the Member States. The MFF for 2014-2020 was negotiated under unfavorable conditions such as wide-spread low growth and austerity measures in the EU. As the budget for the agriculture and cohesion policy reduced, the EU budget decreased for the first time, provoking a salient divide between net contributors and net recipients. In the case of the MFF for 2021-27, its negotiation started in favorable economic conditions, while the UK’s exit from the EU was confirmed. The Brexit created a new financial burden to the EU budget, because the UK has been an important net contributor. This situation also brought about new dynamics in the budget negotiation process. The European Commission succeeded in introducing new own resources based on environment-related levies, while the traditional West-East divide reappeared. The Covid-19 pandemic led to significant changes in the EU budget. The EU and the Member States agreed to create a recovery fund on an unprecedented scale. Given that the damage caused by the Covid-19 pandemic is mostly economic nature, the MFF-linked recovery fund has a role in stabilizing the economies. The implementation of the budget may end with a temporary in nature, but it may also be possible to give a new role to the EU budget depending on the dynamics between EU institutions and the Member States.
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