欧盟《外国直接投资审查框架条例》评析

最近生效的欧盟《建立外国直接投资审查框架的条例》赋予欧盟委员会新的权力,使其可以以安全和公共秩序为由对进入欧盟任一成员国的外国投资进行审查。条例结束了外资安全审查纯属成员国事务的历史,削弱了欧盟成员国的外资批准权。条例生效后,我国在关键技术、关键基础设施等领域以及由国有企业进行的对欧直接投资可能在准入方面受到不利影响。本文采用双向欧洲化的研究视角分析了该制度的“因”与“果”。本文通过主动欧洲化的视角分析指出外资安全审查从成员国层面提升到欧盟层面是德法两国将其国内政策投射到欧盟的结果,其深层原因是这两个欧盟大国因中欧竞争和“16+1合作”而产生了焦虑,力图通过增设欧盟制度来影响其他成员国的外资准入政策。文章通过受动欧洲化的视角指出,条例实施后成员国的外资安全制度会向趋同方向发展,但其中也存在不确定性与挑战,当欧盟与其成员国在发展与安全的关系上持不同观点时,挑战会比较尖锐。欧盟与其将经济和发展问题上升为政治风险,不如帮助成员国以发展来化解风险。

The EU Regulation Establishing a Framework for the Screening of Foreign Direct Investments: Europeanization through the Transposition of Domestic Policies in Member States

The European Union’s Regulation 2019/452 establishing a framework for the screening of FDI into the Union,empowers the EU Commission to review FDI into any member state on the grounds of security and public order.This effectively puts an end to the state-based FDI review and weakens the ability of member states to approve FDI.As it goes into effect,it may have negative impact on Chinese FDI in key technologies and key infrastructure,and on FDI by Chinese state-owned enterprises.One the one hand,shifting the FDI security review away from the individual member states to the EU is a projection of French and Germany domestic mechanisms onto the EU.Due to anxiety over Sino-EU competition,the two countries have sought to introduce the EU-wide review system to influence FDI into other EU states.On the other hand,even though the mechanism may bring convergence in FDI security review in the EU,it still faces uncertainties and challenges in its implementation.Such challenges may become more pronounced when member states disagree with the EU over development and security.