‘It takes three to tango’: new inter-institutional dynamics in managing major crisis reform

This paper provides an in-depth reconstruction of the (failed) reform of the EU’s Common European Asylum System. Even though this was essentially a legislative process, it was characterized by extensive European Council involvement. In fact, the European Council is commonly blamed for the lack of progress in EU reform. Divisions at the level of the Heads and an insistence on consensus made it impossible for the machine room to proceed with the dossier. We challenge this view, by looking at the interplay between the European Council, Council (of Ministers) and Commission. We argue that the effectiveness of European Council involvement crucially depends on the actions of these two institutions. Involvement of the Heads can propel, paralyze or derail EU decision-making, depending on when and how they are brought into play. The Council and Commission play a crucial role by anticipating, setting the scene for and providing the follow-up to European Council involvement.

本文对欧盟共同庇护体系（Common European Asylum System）的失败改革进行了深度还原与梳理。尽管该进程本质上属于立法流程，却以欧洲理事会（European Council）的广泛参与为显著特征。事实上，外界普遍将欧盟改革进展迟缓归咎于欧洲理事会。各国首脑层面的分歧以及对协商一致原则的固守，使得负责推进该议题的常务工作机构无法推动相关立法卷宗的进程。本文通过剖析欧洲理事会、部长理事会（Council of Ministers）与欧盟委员会（Commission）三者间的互动关系，对这一主流观点提出质疑。本文主张，欧洲理事会参与的有效性在根本上取决于后两个机构的行动举措。各国首脑的参与可根据其介入的时机与方式，对欧盟决策进程起到推动、阻滞乃至破坏的作用。部长理事会与欧盟委员会则通过预判欧洲理事会的参与需求、为其参与铺垫条件并跟进后续工作，发挥关键作用。