리스본 조약의 목표와 유럽연합 기구 간 권한 변화: 목표간 위계구조와 그 함의를 중심으로
The Objectives of the Lisbon Treaty and the fluctuation of the role and power between the main institutions of the European Union: focused on the hierarchy of objectives and its implication
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유럽헌법조약을 대체한 리스본 조약은 유럽연합의 제도 개혁을 통해 효율성, 투명성, 민주적 책임성을 지향하는 목표로 했다. 그러나 그러한 목표들은 표면적인 것에 불과했고, 리스본 조약에는 그것을 넘어 숨겨진 의제 곧 궁극적인 최종 목적이 있다는 것이본 글의 주장이다. 이를 뒷받침하기 위해 본 글은 리스본 조약을 향한 협상과정과 최종타결내용을 살펴보았다. 그 결과 조약이 표방한 목표들 간에는 효율성을 정점으로 민주적 책임성과 투명성이 각각 그 하단을 차지하는 위계구조를 이루고 있었다. 그리고 위계구조의 최정상에 효율성이 있다는 것은 사실상 리스본 조약이 추구하는 개혁의 진정한 목표가 유럽연합의 리더십 확보에 있음을 의미한다. 구체적으로 유럽이사회 의장을정점으로 유럽이사회가 통합의 진전을 위해 리더십의 전면에 나서고, 그 측면에서 유럽이사회를 보좌해 유럽의회가 집행위원회를 견제하는 가운데 각료이사회로 하여금 통합의 진전을 위한 신속한 법안 처리를 강요하게 되는 구도가 바로 리스본 조약이 추구하는개혁의 진정한 내용이었다. 나아가 이런 구도는 통합의 진전을 원하는 이른바 친 통합국가들의 이익에 더욱 부합하는 것으로 보였다. 따라서 리스본 조약을 정부간 기구와초국가 기구간의 권력관계 차원에서만 바라보아서는 안 된다. 오히려 동 조약을 통합에적극적인 국가와 이를 지연시키려는 국가 간 권력관계차원에서 우선적으로 바라볼 필요가 있다는 것이 본 글의 최종적인 주장이다.
Abstract
The Treaty of Lisbon as well as its predecessor, namely, The European Constitutional Treaty, aimed at improving the effectiveness, transparency and democratic accountability of the EU. Although these objectives played an important role in the treaty of Lisbon, I argued that there was a hidden eventual objective in the Lisbon reform treaty beyond these declared objectives. To support my thesis, this paper reviewed the whole negotiating processes towards completing the treaty of Lisbon and their outputs. As a result, it seemed to me that there was a hierarchy between these declared objectives which formed effectiveness on the top rank, democratic accountability on the second rank and transparency on the bottom rank. It means that the real goal the Lisbon Treaty promotes is institutional provisions for effective leadership. In a concrete way, the true substance of reform the Lisbon Treaty directed was such a composition that the Council led by the president of the European Council exercised the political leadership to actively push forward integration far beyond what member states were willing to accept and the European Parliament, which supported the European Council’s leadership and, at the same time, kept the European Commission in check, forced the council of ministers to rapidly adopt the legislatives proposed by the European Commission. Furthermore, this framework seemed to meet the expectations of rather the integration-mined member states than the reluctant Euro-skeptic member states. In the final conclusion, this paper insisted that the Lisbon Treaty should not be analysed only in the perspectives of the power relations between intergovernmental and supranational institutions, but be analysed in the first place in the perspectives of the power relations between member states, those that actively promote European integration and those that prefer to slow it down or to give it another direction.
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