EUにおける対外政策の一貫性と開発協力政策の自立性

―欧州対外活動庁の設立過程に着目して―

抄録

This paper points out several challenges encountered in the process for integrating the EU’s development cooperation policy into its comprehensive external policy, which aims to ensure “consistency” of the EU’s external action. The Lisbon Treaty provides the establishment of the European External Action Service (EEAS). The EEAS was intended as a single institution to cover all of the EU’s external policies, including its development cooperation policy, at the beginning of the establishment process. Some actors of the EU who were concerned with the development cooperation, however, have expressed disapproval of the full integration. Why have they refused to accept the original establishment plan for the EEAS? What has made the full integration complicated?
These questions are answered through evidence-based explanations in the following three sections. First, the EU’s external policy contains various policies with different forms in terms of the governance. The different settings in the policy making and implementation seem to restrict the development of the EU’s consistent external policy. Second, the debate on the establishment of the EEAS revealed the difficulty of bridging the gap between the development cooperation policy and the common foreign and security policy (CFSP). Several issues disputed at the debate were undoubtedly influential in the power balance of the actors such as the Commission, the Council and the European Parliament. And third, the institutional reform of the EU’s development cooperation policy in the 2000s brought a significant change in the policy implementation. The new structure is marked by the devolution of authority and the cooperation with NGOs. It has raised further challenges for the collaboration between the EEAS and the public/private actors urging the EU’s development cooperation.
In conclusion, the findings show that the EU is confronted with institutional, political and structural challenges, namely the divergent decision-making procedures, the power struggles and the EEAS’s inadequate competence for policy implementation. These challenges complicate the full integration of the EU’s development cooperation policy into its comprehensive external policy. Hereafter whichever option, the full integration or the equal separation, is taken finally, the EU needs to elaborate an institutional and political system in which ensuring the consistency makes the aid effective.