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유럽연합 지역정책의 거버넌스 방식

A New Mode of Governance in the EU's Regional Policy?

김학노
극동문제연구소 (THE INSTITUTE FOR FAR EASTERN STUDIES)|2009.06|한국과 국제정치 (Korea and World Politics)|제25권 제2호|pp. 89-117|DOI 10.17331/kwp.2009.25.2.004

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EU 지역정책EU Regional PolicyOMC(Open Method of Coordination)EU 혁신정책실험주의 거버넌스지역실험주의열린 조정방식EU Innovation PolicyExperimentalist GovernanceRegional Experimentalism
주제분류정치외교학

초록

이 글은 유럽연합(EU)의 지역정책에 공동체 방식의 요소도 있지만, 그에 못지않게 새로운 거버넌스 요소가 많이 발달했다고 주장한다. 최근 세이블(Sabel)과 자이틀린(Zeitlin)은 EU의 기본 골격을 이루는 규칙 제정과 개정 과정이 ‘실험주의 거버넌스’ 방식에 입각해 있다고 규정함으로써 EU 거버넌스 논의에 새로운 지평을 열었다. 하지만 이들은 지역정책을 실험주의 거버넌스 방식이 적용되는 영역에서 제외함으로써 지역정책을 전통적인 ‘공동체 방식’에 입각해 있다고 보는 기존의 시각을 따른다. 이러한 시각과 달리, 이 글은 EU 지역정책에 새로운 거버넌스 요소가 상당히 발달하였음을 세 부분으로 나누어서 보여준다. 첫째, 세이블이 ‘지역실험주의’라고 명명한 조정방식이 지역정책에서 나타나며, 이는 지역정책에서 수립된 ‘파트너십’ 원칙에 의해서 강화되어 왔다. 둘째, 지역정책이 혁신정책과 수렴하면서 지역실험주의 요소가 많이 발달하였다. 혁신정책과 수렴하면서 지역정책은 지역 내 그리고 지역 간 ‘사회적 학습’을 도모하고, 지역 차원의 ‘실험’을 장려하고 그 결과로부터 서로 학습하도록 도와준다. 셋째, EU 지역정책에 새로운 거버넌스 방식을 본격적으로 도입하려는 노력이 있다. 혁신정책의 ‘열린 조정방식’(OMC) 확대, 지역정책 자체에 대한 OMC 도입 논의, 2007～2013년 기간의 지역정책에 도입된 새로운 ‘전략적 접근’이 여기에 해당한다.

Abstract

The argument of this paper is that the regional policy of the EU is governed not just by the 'Community method' but also by 'new' modes of governance. The recent contribution by Sabel and Zeitlin about the 'experimentalist governance,' which refers to the underlying governance arrangements of framework rule-making and revision in the EU, opens a new chapter in the debate on new modes of governance in the EU. They, however, do not include regional policy in the policy areas where experimentalist governance prevails, thus leave EU regional policy in the areas where the old Community method reigns. In contrast to this dominant view about governance mechanism in the EU regional policy, this paper shows the development of new modes of governance in the EU regional policy area in three aspects. First, what Sabel called 'regional experimentalism' has developed in EU regional policy, in particular thanks to the principle of 'partnership' firmly established in that policy area. Second, regional policy and innovation policy have converged together towards regional innovation policy in the EU, adding new weights to regional experimentalism. Converged with innovation policy, EU regional policy has been promoting 'social learning' through active interaction among various actors and across regions. Not just advancing intra―and inter―regional interactive learning, EU also explicitly urges regions themselves to 'experiment' with new ideas and strategies. Finally, we can also find some explicit efforts to establish experimentalist governance in EU regional policy, including the expansion of OMC and the adoption of the 'strategy approach' for the EU cohesion policy for 2007-2013 period.

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