AB’de Sınır Aşan Kriz Yönetiminde AB Ajanslarının Rolü

Öz

Sınır aşan krizler, acil eylem gerektiren, coğrafi, politik, ekonomik, sosyal ve yasal sınırları aşan krizler olarak farklı şekillerde ortaya çıkmaktadır. Bu çalışmada AB’de, sınır aşan krizlerin yönetiminde AB ajanslarının rolü araştırılmış; AB ajanslarının bu tür krizlerin yönetiminde ne kadar etkin olabildikleri sorusuna cevap aranmıştır. Bu amaçla AB’de yaşanan gıda krizleri, bulaşıcı hastalıklar krizi, deniz kazaları krizi, terör krizi, göçmen krizi, sınır krizi, siber güvenlik krizi, bankacılık krizi ve iklim krizi incelenmiştir. Bu krizlerin yönetilmesinde AB ajanslarından Avrupa Gıda Güvenliği Otoritesi (EFSA), Avrupa Hastalık Önleme ve Kontrol Merkezi (ECDC), Avrupa Tıbbi Ürünleri Değerlendirme Ajansı (EMEA), Avrupa Deniz Güvenliği Ajansı (EMSA), Avrupa Polis Ofisi (Europol), Avrupa Dış Sınırlarda Operasyonel İşbirliği Yönetimi Ajansı (Frontex), Avrupa İltica Destek Ofisi (EASO), Avrupa Ağ ve Bilgi Güvenliği Ajansı (ENISA), Avrupa Bankacılık Otoritesi (EBA) ve Avrupa Çevre Ajansı (EEA)’nın rolü değerlendirilmiştir. Doküman analizi yönteminin kullanıldığı çalışmada, ajansların etkinliklerinin belli kısıtlılıklara göre şekillendiği, AB kriz yönetiminin daha entegre bir yaklaşımla kurumsallaştırılması gerektiği sonucuna ulaşılmıştır.

Anahtar Kelimeler

• Sınır aşan krizler
• AB
• Kriz Yönetimi
• AB ajansları
• Etkinlik

The Role of EU Agencies in Transboundary Crisis Management in the EU

Öz

Transnational crises emerge in different forms as crises that require urgent action and transcend geographical, political, economics, social and legal boundaries. In this study, the role of EU agencies in the management of transboundary crises in the EU is investigated and the question of how effective EU agencies are in the management of such crises is sought to be answered. For this purpose, food crises, infectious diseases crisis, maritime accidents crisis, terrorism crisis, migrant crisis, border crisis, cyber security crisis, banking crisis and climate crisis in the EU are analysed. The role of EU agencies such as the European Food Safety Authority (EFSA), the European Centre for Disease Prevention and Control (ECDC), the European Agency for the Evaluation of Medicinal Products (EMEA), the European Maritime Safety Agency (EMSA), the European Police Office (Europol), the European Agency for the Management of Operational Cooperation at External Borders (Frontex), the European Asylum Support Office (EASO), the European Network and Information Security Agency (ENISA), the European Banking Authority (EBA) and the European Environment Agency (EEA) in managing these crises was evaluated. Using the document analysis method, the study concludes that the effectiveness of the agencies is shaped by certain limitations and that EU crisis management should be institutionalised with a more integrated approach.

Anahtar Kelimeler

• Transboundary crises
• EU
• Crisis management
• EU agencies
• Effectiveness

Kaynakça

1. Akalın, M. (2014). Uluslararası kriminal polis teşkilatı-Interpol’ün terörle mücadeleye tarihsel yaklaşımı. Uluslararası Güvenlik ve Terörizm Dergisi, 5(1), 103-117.
2. Akalın, M. (2015). Europol: Türkiye’nin operasyonel işbirliği tartışması. Türk İdare Dergisi, (428), 11-31.
3. Akbaba, D.(2022, Eylül 18). Dünyanın en büyük çevre felaketi: Çernobil. https://tzv.org.tr /bilim-teknoloji/dunyanin-en-buyuk-cevre-felaketi-cernobil/ (Erişim Tarihi: 25 Aralık 2023)
4. Akdoğan, M. (2018). Avrupa Birliği’nin sınırlarına dayanan mülteci krizi ve yönetimi. Uluslararası İlişkiler ve Diplomasi, 1(1), 48-75.
5. Akdoğan, M., Günay, A., Birsen, S. A. Y. & Gür, N. G. (2020). Avrupa Birliği’nin Covid-19 yönetimi. Ekonomi Politika ve Finans Araştırmaları Dergisi, 5(Özel Sayı), 32-58. https://doi.org/10.30784/epfad.805320
6. Ansell, C., Boin, R. A. & Keller, A. (2010), Managing transboundary crises:ıdentifying the building blocks of an effective response system. Journal of Contingencies and Crisis Management, 18 (4), 195–207. https://doi.org/10.1111/j.1468-5973.2010.00620.x
7. Backman, S., & Rhinard, M. (2018). The European Union’s capacities for managing crises. Journal of contingencies and crisis management, 26(2), 261-271.
8. Barnier, M. (2006). For a European civil protection force: europe aid, https://www.eu.dk /samling/20051/almdel/EUU/bilag/262/280774.pdf (Erişim Tarihi: 18 Aralık 2023)

9. Boin, A., Busuioc, M. & Groenleer, M. L. (2011). Building joint capacity: the role of European Union agencies in the management of trans-boundary crises. Jerusalem Papers in Regulation & Governance, Working Paper No:36. http://dx.doi.org/ 10.2139/ssrn.1906281
10. Boin, A., Rhinard, M. & Ekengren, M. (2014). Managing transboundary crises: the emergence of European Union capacity. Journal of Contingencies and Crisis Management, 22 (3), 131-142. https://doi.org/10.1111/1468-5973.12052
11. Boin, A., Hart, P. Stern, E. & Sundelius, B. (2017). The politics of crisis management: public leadership under pressure. Cambridge University Press.
12. Boin, A. (2019). The transboundary crisis: why we are unprepared and the road ahead. Journal of Contingencies and Crisis Management, 27(1), 94-99. https://doi.org/10.1111/1468-5973.12241
13. Busuioc, M. & Groenleer, M. (2011, June 22). Beyond design, the evolution of Europol and Eurojust. Amsterdam Law School Research Paper No. 2011-09, Amsterdam Centre for European Law and Governance Research Paper No. 2011-03. http://dx.doi.org/10.21 39/ssrn.1869994
14. Chalk, P. (1996). West European terrorism and counter-terrorism: the evolving dynamic. Springer.
15. Climate-Adapt (t.y.). European Climate Risk Assessment. https://climate-adapt.eea.europa.eu/en/eu-adaptation-policy/key-eu-actions/climate_risk_assessment (Erişim Tarihi: 23 Aralık 2023)
16. Council of the European Unıon (2004, December 13). The Hague Programme: strengthening freedom, security and justice in the European Union, https://data.consilium. europa.eu/doc/document/ST%2016054%202004%20INIT/EN/pdf (Erişim Tarihi: 9 Mayıs 2023)
17. Çamlıca, F. (2016). Avrupa finansal denetim sistemi ve bankacılık birliği. Marmara Üniversitesi Avrupa Araştırmaları Enstitüsü Avrupa Araştırmaları Dergisi, 24(1), 1-26. https://doi.org/10.29228/mjes.70
18. Çeltek, E. G. (2004). Avrupa Birliği’nde gıda güvenliği. Gıda Mühendisliği Dergisi, 18, 17-24.
19. Çıkrıkçı, T. & Okur, M. A. (2021). İnsan güvenliği merceğinde sığınmacı krizi ve Avrupa. Ankara Avrupa Çalışmaları Dergisi, 20(1), 97-127.
20. Deruelle, T. & Engeli, I. (2021). The COVID-19 crisis and the rise of the European Centre for Disease Prevention and Control (ECDC). West European Politics, 44(5-6), 1376-1400. https://doi.org/10.1080/01402382.2021.1930426
21. ECDC (2020). Rapid Risk Assessment: Outbreak of acute respiratory syndrome associated with a novel coronavirus, Wuhan, China; first update. https://www.ecdc.europa.eu/sites /default/files/documents/Risk-assessment-pneumonia-Wuhan-China-22-Jan-2020.pdf (Erişim Tarihi: 8 Nisan 2023)
22. EEA (2021, Nov 17). What will the future bring when it comes to climate hazards? – Overview. Briefing, https://www.eea.europa.eu/publications/europes-changing-climate-hazards-1/what-will-the-future-bring (Erişim Tarihi:26Aralık 2023)
23. EEA (2023, Nov 17). Topics, Climate change impacts,risks and adaptation. https://www.eea.europa.eu/en/topics/in-depth/climate-change-impacts-risks-and-adaptation (Erişim Tarihi: 26 Aralık 2023)
24. Ekelund, H. (2010). The agencification of Europe: explaining the establishment of European Community agencies. (Unpublished Doctoral dissertation). University of Nottingham.
25. Ekengren, M., Matzen, N., Rhinard, M. & Svantesson, M. (2006). Solidarity or sovereignty? EU cooperation in civil protection. Journal of European Integration, 28(5), 457-476.
26. EMEA (2005) EMEA pandemic ınfluenza crisis management plan for the evaluation and maintenance of pandemic ınfluenza vaccines and antivirals. https://www.ema.europa.eu/en/documents/other/draft-emea-pandemic-influenza crisi s-management-plan-evaluation-maintenance-pandemic-influenza_en-0.pdf (Erişim Tarihi: 2 Mayıs 2023)
27. Eraydın, A. (2007). Politikalardan süreç tasarımına: yeni bölgesel politikalar ve yönetişim modelleri. 2. Bölgesel Kalkınma ve Yönetişim Sempozyumu Bildiri Kitabı. TEPAV.
28. Erdoğan, S. (2020). Avrupa Birliği ve krizler: tarihi ve güncel krizler üzerine bir değerlendirme. Ankara Üniversitesi SBF Dergisi, 75(2), 589-606.
29. Euractive (2010, August 17). Commission heeds Sarkozy’s request for EU crisis response force. https://www.euractiv.com/section/global-europe/news/commission-heeds-sarkozy-s-request-for-eu-crisis-response-force/ (Erişim Tarihi: 19 Aralık 2023)
30. EUR-Lex, (2016a). Consolidated version of the treaty on the functioning of the European Union, Official Journal of the European Union, C 202. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=OJ:C:2016:202:TOC (Erişim Tarihi:5 Haziran 2023)
31. EUR-Lex, (2016b). European border and coast guard (until December 2020). https://eur-lex.europa.eu/EN/legal-content/summary/european-border-and-coast-guard-until-december-2020.html (Erişim Tarihi: 9 Haziran 2023)
32. EUR-Lex, (2001). 2001/792/EC, Euratom: Council Decision of 23 October 2001 establishing a Community mechanism to facilitate reinforced cooperation in civil protection assistance interventions. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri =CELEX :32001D0792 (Erişim Tarihi:18 Aralık 2023)
33. EUR-Lex, (2010). Communication from the Commıssıon to the European Parliament and the Council towards a stronger European disaster response: the role of civil protection and humanitarian assistance (Text with EEA relevance) /COM/2010/0600 final/. https://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:52010DC0600:EN:HTML (Erişim Tarihi: 19 Aralık 2023)
34. Euronews (2022, Ağustos 31). İsrail ile Almanya, Münih Olimpiyatları kurbanlarının aileleri için tazminat anlaşmasına vardı. https://tr.euronews.com/2022/08/31 (Erişim Tarihi: 3 Mayıs 2023)
35. European Commission (t.y.-a). Crisis management. https://home-affairs.ec.europa.eu /pages /page/crisis-management_en (Erişim Tarihi: 13 Temmuz 2023)
36. European Commmison, (t.y.-b). Common European asylum system. https://home-affairs.ec. europa.eu/policies/migration-and-asylum/common-european-asylum-system_en (Erişim Tarihi: 5 Mayıs 2023)
37. European Commission (2002). Bulletin of the European Union 12/2001. https://op.europa.eu/en/publication-detail/-/publication/d63ec5f5-41b6-4878-be36-6ee2cf56844f (Erişim Tarihi:15 Temmuz 2023)
38. European Commission (2010). Communication from the Commission to the European Parliament and the Council the EU Internal Security Strategy in Action: five steps towards a more secure Europe, COM(2010) 673 final. https://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2010:0673:FIN:EN:PDF (Erişim Tarihi: 17 Aralık 2023)
39. European Commission (2015).Banking union: restoring financial stability in the Eurozone, Updated version of first memo published on 15/04/2014. https://ec.europa.eu /commission/presscorner/detail/en/MEMO_14_294 (Erişim Tarihi: 2 Ocak 2023)
40. European Commission (2020). Communication from the Commission to the European Parliament, the European Council, the Council, the European Economic and Social Committee and the Committee of the Regions on the EU Security Union Strategy, COM(2020) 605 final. https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri= CEL EX:52020DC0605 (Erişim Tarihi: 21Aralık 2023)
41. European Court of the Auditors (2022). Annual report on EU agencies for the financial year 2022. https://www.enisa.europa.eu/about-enisa/accounting-finance/files/enisa-2022-annual-accounts-eca-report.pdf (Erişim Tarihi:25 Aralık 2023)
42. Fooner, M. (1989). Interpol: ıssues in world crime and ınternational justice. Springer Science & Business Media. Groenleer, M., Kaeding, M. & Versluis, E. (2010). Regulatory governance through EU agencies? The ımplementation of transport directives. Journal of European Public Policy, 17(8), 1212-1230. https://doi.org/10.1080/13501763.2010.513577
43. Grönvall, J. (2001), Mad cow disease: the role of experts and european crisis management. In U. Rosenthal, R.A. Boin, and L.K.Comfort (Eds). Managing crises: threats, dilemmas, opportunities (ss.155–174). Thomas, Springfield.
44. Güder, S. (2020). Covid-19’un uluslararası sistem ve Türkiye siyasetine yansımaları. D. Demirbaş, V. Bozkurt, S. Yorğun (Ed.), Covid-19 pandemisinin ekonomik, toplumsal ve siyasal etkileri içinde (ss.185- 201). İstanbul Üniversitesi Yayınevi.
45. Güneysu, G. & Tabanlı, F. (2020). Erika ve prestige kazalarının oluşan hukuk kurallarına etkisi. Erciyes Üniversitesi Hukuk Fakültesi Dergisi, 15(1), 109-137.
46. Hruska, M.(2010, Aug 16). France proposes EU reaction force for natural disasters, euobserver. https://euobserver.com/green-economy/30626 (Erişim Tarihi: 19 Aralık 2023)
47. Jordana, J. & Trivino‐Salazar, J. C. (2020). EU agencies’ involvement in transboundary crisis response: supporting efforts or leading coordination?. Public Administration, 98(2), 515-529. https://doi.org/10.1111/padm.12652
48. Karaca, İ. (2016). AB’nin entegre sınır yönetimi kurumu Frontex’in rolü ve Türkiye’nin uyum süreci (YÖK Tez Merkezi, Yüksek lisans). Beykent Üniversitesi.
49. Karahan (2021, Haziran 3). Bir dijital dönüşüm hikâyesi: Estonya. https://medium.com/databulls/bir-dijital-d%C3%B6n%C3%BC%C5%9F%C3%BCm-hikayesi-estonya-9e5ebe85d3f8 (Erişim Tarihi:5 Ocak 2022)
50. Kaeding, M. (2020). More important than ever–EU agencies in times of crisis. EIPA briefing, 2020/8. https://www.eipa.eu/publications/briefing/more-important-than-ever-eu-agenci es in-times-of-crisis/ (Erişim Tarihi: 8 Haziran 2022)
51. Kelemen, R. D. (2005). The politics of Eurocracy: building a new European state?. In N.Jabko and C.Parsons (Eds.) The state of the European Union (ss.173-189). Oxford University Press.
52. Kıral, B. (2020). Nitel bir veri analizi yöntemi olarak doküman analizi. Siirt Üniversitesi Sosyal Bilimler Enstitüsü Dergisi, 8(15), 170-189.
53. Liberatore, A. (1999). The management of uncertainty: learning from Chernobyl. Gordon and Breach Publishers.
54. Liesbet, H & Gary, M. (2003). Unraveling the central state, but how? Types of multi-level governance. American political science review, 97(2), 233-243.
55. Official Journal of the European Communities (1995). Councıl act of 26 July 1995 drawing up the Convention based on Article K.3 of the Treaty on European Union, on the establishment of a European Police Office (Europol Convention) (95/C316/01). https://eurlex.europa.eu/legalcontent/EN/TXT/PDF/?uri=CELEX:31995F1127(01)&from =EN (Erişim Tarihi: 7 Temmuz 2022)
56. Official Journal of the European Union (2010). Notices from European Union institutions, bodies, offices and agencıes European Councıl The Stockholm Programme — an open and secure Europe servıng and protectıng citizens (2010/C 115/01). https://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2010:115:0001:0038:EN:PDF Erişim Tarihi: 20 Aralık 2023)
57. Official Journal of the European Union (2017). European Agenda on Security, European Parliament resolution of 9 July 2015 on the European Agenda on Security (2015/2697(RSP)) (2017/C 265/10). https://eur-lex.europa.eu/legal-content/EN/TXT/ PDF/?uri=CELEX:52015IP0269 (Erişim Tarihi:20 Aralık 2023) Petrol saçan Erika gözaltında. (2000, 4 Haziran ). Milliyet, https://www.milliyet.com.tr/the-others/petrol-sacan-erika-gozaltinda-5316864 (Erişim Tarihi: 2 Mayıs 2022)
58. Reformatorisch Dagblad (2008, Juli 7). Geen Europese rampenbestrijdingsdienst. https://www.rd.nl/artikel/235732-geen-europese-rampenbestrijdingsdienst (Erişim Tarihi: 18 Aralık 2023)
59. Regulation (EC) No 178/2002 of the European Parliament and of the Council of 28 January 2002 laying down the general principles and requirements of food law, establishing the European Food Safety Authority and laying down procedures in matters of food safety. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32002R0178 (Erişim Tarihi: 20 Aralık 2023)
60. Regulation (EC) No 1406/2002 of the European Parliament and of the Council of 27 June 2002 establishing a European Maritime Safety Agency (Text with EEA relevance). https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32002R1406 (Erişim Tarihi: 21 Aralık 2023)
61. Regulation (EC) No 851/2004 of the European Parliament and of the Council of 21 april 2004 establishing a European centre for disease prevention and control. https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX%3A32004R0851 (Erişim Tarihi: 21 Aralık 2023)
62. Regulation (EC) No 726/2004 of the European Parliament and of the Council of 31 March 2004 laying down Community procedures for the authorisation and supervision of medicinal products for human and veterinary use and establishing a European Medicines Agency (Text with EEA relevance). https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32004R0726 (Erişim Tarihi: 20 Aralık 2023)
63. Regulation (EC) No 401/2009 of the European Parliament and of the Council of 23 April 2009 on the European Environment Agency and the European Environment Information and Observation Network (Codified version). https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX%3A32009R0401 (Erişim Tarihi: 27 Aralık 2023)
64. Regulatıon (EU) no 439/2010 of the European Parlıament and of the Councıl of 19 May 2010 establishing a European Asylum Support Office. https://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2010:132:0011:0028:EN:PDF (Erişim Tarihi: 26 Aralık 2023)
65. Regulation (EU) No 1093/2010 of the European Parliament and of the Council of 24 November 2010 establishing a European Supervisory Authority (European Banking Authority), amending Decision No 716/2009/EC and repealing Commission Decision 2009/78/EC. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32010R1093 (Erişim Tarihi: 24 Aralık 2023)
66. Regulation (EU) No 526/2013 of the European Parliament and of the Council of 21 May 2013 concerning the European Union Agency for Network and Information Security (ENISA) and repealing Regulation (EC) No 460/2004 Text with EEA relevance. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32013R0526 (Erişim Tarihi: 22 Aralık 2023)
67. Regulation (EU) 2016/794 of the European Parliament and of the Council of 11 May 2016 on the European Union Agency for Law Enforcement Cooperation (Europol) and replacing and repealing Council Decisions 2009/371/JHA, 2009/934/JHA, 2009/935/JHA, 2009/936/JHA and 2009/968/JHA. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32016R0794 (Erişim Tarihi: 22 Aralık 2023)
68. Regulation (EU) 2016/1624 of the European Parliament and of the Council of 14 September 2016 on the European Border and Coast Guard and amending Regulation (EU) 2016/399 of the European Parliament and of the Council and repealing Regulation (EC) No 863/2007 of the European Parliament and of the Council, Council Regulation (EC) No 2007/2004 and Council Decision 2005/267/EC. https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32016R1624 (Erişim Tarihi: 25 Aralık 2023)
69. Ruohonen, J., Hyrynsalmi, S.& Leppanen, V. (2016). An outlook on the institutional evolution of the European Union cyber security apparatus. Government Information Quarterly, 33(4), 746-756. Sarı, Ö.F. (2016). Yeni kurumsalcılık çerçevesinde enerji topluluğu. (YÖK Tez Merkezi, Yüksek Lisans). Ankara Üniversitesi.
70. Soytürk, M. (2018). Avrupa Birliği iltica ve mülteci politikalarının iflası ve paradigma değişiminin gerekliliği. Ankara Hacı Bayram Veli Üniversitesi İktisadi ve İdari Bilimler Fakültesi Dergisi, 20(3), 620-639.
71. Svedin, L. M. (2011). The autonomy of European Union agencies: a comparative study of ınstitutional development. Journal of Comparative Policy Analysis:Research and Practice, 13 (3). https://doi.org/10.1080/13876988.2011.565919
72. Trimintzios, P., Ogee, A., Gavrila R.& Zacharis, A. (2015). Report on cyber crisis cooperation and management, European Union Agency for Network and Information Security. https://op.europa.eu/en/publication-detail/-/publication/85f0d344-8a1f-422d-8832-393509b58c23 (Erişim Tarihi: 3 Mart 2023)
73. Vos, E. (2018). EU Agencies, common approach and parliamentary scrutiny. European Parliamentary research service study, PE627.131. https://www.europarl.europa.eu /RegData/etudes/STUD/2018/627131/EPRS_STU(2018)627131_EN.pdf (Erişim Tarihi: 1 Mayıs 2022)
74. Yalçın Erik, N. (2015). Petrol tankeri kazaları ve neden olduğu çevre kirliliği. Mavi Gezegen (20), 1-11.
75. Yazıcı, M. (2015, Ağustos 24). İlk modern siber atak: Estonya, TUİK Akademi, https://www.tuicakademi.org/ilk-modern-siber-atak-estonya/ (Erişim Tarihi: 6 Nisan 2022)