欧盟峰会决定同英国开启第二阶段谈判

“脱欧”谈判跨过“分水岭”（国际视点）

人民视觉

核心阅读

12月15日，欧盟除英国以外的27国领导人在布鲁塞尔欧洲理事会总部举行会议，宣布英国“脱欧”第一阶段谈判在“分手费”等核心议题上取得“足够进展”，可以开启第二阶段谈判。分析认为，第二阶段“脱欧”谈判将比第一阶段更为艰难，将是英国各方力量与欧盟各方力量之间的轮番较量。英欧要在2019年3月29日英国“脱欧”最后期限之前完成更为关键性的谈判并非易事。

欧盟——

制定出过渡期关系谈判指导方针

据欧盟新闻网站“欧盟观察家”报道称，欧盟27国领导人15日非常“愉快地”接受了欧盟委员会和英国12月8日达成的“脱欧”协议，并且只用了10分钟就通过了关于“脱欧”过渡期关系谈判的指导方针，制定出未来几个月“脱欧”谈判的大致时间表。

有欧洲媒体形象地指出，“脱欧”第一阶段谈判主要解决英国和欧盟的“离婚”问题，第二阶段谈判主要解决双方如何处理好“婚后关系”等实质性问题。经过6个月的讨价还价，第一阶段“脱欧”谈判终于步出泥潭，进入深水区。

英国“脱欧”第一阶段谈判有三大核心议题，分别是“分手费”、爱尔兰边界以及欧盟在英公民权利，其中“分手费”是谈判难有进展的最大障碍。12月8日，英国首相特雷莎·梅与欧盟委员会主席容克在布鲁塞尔举行“脱欧”会谈，双方终于就上述三大核心议题达成协议，为“脱欧”谈判进入第二阶段扫除了障碍。

第二阶段谈判需要解决的第一个问题是“脱欧”过渡期关系问题，然后才是未来双边实质性关系问题。在未来双边实质性关系谈判中，贸易谈判、公民权利等将是一块“硬骨头”。

按照规定，英国将于2019年3月29日正式脱离欧盟。今年9月，英国提出希望欧盟在英国“脱欧”后能给英国两年左右的时间作为“过渡期”。根据此次欧盟峰会公布的“过渡期”关系谈判指导方针，欧盟同意与英方商议一个适用欧盟现行规章制度的过渡期。在过渡期内，英国必须像欧盟成员国一样遵守欧盟的法律规定，但不能参与欧盟机构的决策。

指导方针认为，在过渡期内，欧盟现行的管理、预算、监管、司法等规章制度将继续在英国和欧盟适用，包括欧洲法院的管辖权；英国将继续留在关税同盟和欧洲单一市场中，遵守单一市场商品、服务、资本和劳动力的流动自由原则，遵守欧盟贸易政策、关税政策，履行关税义务等。

英国——

“尽管有杂音，但工作仍在继续”

“脱欧”谈判终于要掀开新的一页，这对于英国政府来说无疑是个好消息。英国首相特蕾莎·梅17日对英国媒体表示，过去10天是“脱欧”谈判中的一个“分水岭”，英国政府现在起要开始和欧盟建立“深入的”“特殊的”伙伴关系。“尽管有杂音，但工作仍在继续。”特蕾莎·梅表示。

特蕾莎·梅提到的“杂音”之一是几天前一次“失控”的投票。当地时间13日晚，英国议会下院投票通过了一项修正案，同意在《退出欧盟法案》中明确，英国政府与欧盟谈判达成的最终“脱欧”协议在签订前需经过议会表决通过。这不仅意味着英议会将掌握对“脱欧”协议的“实质性的表决权”，也大大限制了英国政府在“脱欧”谈判上可施展的余地。特蕾莎·梅正是在这种不利因素下14日前往布鲁塞尔参加欧盟峰会的。

英国媒体报道称，虽然特蕾莎·梅承认对这项修正案的投票结果感到失望，但她对于推进“脱欧”谈判进程仍是十分笃定，表示谈判“正在轨道上”。她在欧盟峰会的讲话中，也尽力淡化了政府在投票中的失利。

鉴于英国议会最近通过这项议案，将“脱欧”最终决定权从政府回收到议会，欧盟要求英国必须完整践行第一阶段谈判的全部承诺，并尽快将其转化为法律条款，这是第二阶段谈判能向前推进的前提。

英国伦敦政治经济学院欧洲研究所教授伊恩·贝格在接受本报记者采访时表示，修正案的投票结果不会对欧洲理事会的此次决议以及“脱欧”进程造成过多影响。“投票反映出英国政府的尴尬处境，不过欧盟对于英政府特别是首相特蕾莎·梅在政治上的弱势已有所了解。因此，这次投票以及今后还有可能出现的类似状况，并不会在多大程度上影响欧洲理事会。”伊恩·贝格表示。

舆论——

顺利“脱欧”仍将面临很多困难

有分析指出，英欧双方成功开启了下一阶段的谈判，但距离最终顺利“脱欧”仍将面临很多困难。

伊恩·贝格表示，目前，虽然英国和欧盟已就“分手费”、爱尔兰边界等问题达成了一致，在为“脱欧”设置“过渡期”这一问题上也有共识，但是，究竟“过渡期”有多长、涵盖哪些方面等细节仍有待商定，早先达成的关于避免爱尔兰“硬边界”的协议也比较模糊。“如果你仔细阅读那份协议，你会发现实际上爱尔兰边界问题并没有得到最终的解决，这仍将是下一轮谈判中的一个重要部分。”伊恩·贝格说。

英国广播公司（BBC）的分析也表示，特蕾莎·梅在2018年面临的挑战是如何让她的党派以及整个国家在接下来的“脱欧”谈判中保持一致。为了让“脱欧”取得实质性的进展，英国不得已在谈判的第一阶段做出很大让步，这已经引起了英国国内一些强硬“脱欧”派的反对。在未来的谈判中，英国如果继续做出让步，势必会招来更多的反对。

根据欧盟给出的时间表，关于“脱欧”过渡期关系的谈判最早将在明年1月启动，但是关于双边未来实质关系的谈判最早也得于明年3月开始。有分析认为，第二阶段“脱欧”谈判将比第一阶段更为艰难，因为对未来双边关系的安排将会牵扯到各方利益，英国不同的利益集团将会纷纷登场表达自己的诉求，欧盟各成员国也会站出来要求做出最有利于自身的安排。

分析认为，如果说第一阶段谈判是英国与欧盟“一对一”的谈判，那么第二阶段谈判将是英国各方力量与欧盟各方力量之间的轮番较量。如果各方争执不下，第二阶段谈判不仅会再次陷入僵局，还会在英国与欧盟内部造成更多分裂。

l来源：人民网

Core reading

In December 15th, the 27 leaders of the European Union except the UK held a meeting at the headquarters of the European Council in Brussels, announcing that the first stage negotiations in the UK "got rid of Europe" achieved enough progress in the core issues such as the breakup fee and opened the second stage negotiations. The analysis holds that the second stage of "deeu" negotiations will be more difficult than the first stage, which will be the rotation between the forces of the United Kingdom and the forces of the European Union. Britain and Europe should be completed before the March 29, 2019 British "off the European" deadline is more critical of the negotiations is not easy.

The EU -

Formulating guidelines for negotiations on the relationship between the transition period

According to the news website "the EU Observer" reported that the 27 EU leaders of the 15 "very happy" accepted the European Commission and the UK in December 8th reached a "exit" agreement, and only 10 minutes by the guidelines about the relationship of "off the European" transition period of negotiations, making the next few months "from Europe" negotiations the general timetable.

European media has pointed out that the first stage negotiations on "off Europe" mainly solve the "divorce" problem between the UK and the EU. The second stage of negotiations is mainly about how to deal with the substantive issues such as "marriage relations". After 6 months of bargaining, the first stage of the "de Europe" negotiations finally stepped out of the mire and entered the deep water area.

There are three core issues in the first stage negotiations of Britain's "off Europe". They are the breakup fee, the Irish border and the EU's right to British citizenship. The breakup fee is the biggest obstacle to the progress of negotiations. In December 8th, British Prime Minister Teresa May and European Commission President Juncker held a "farewell Europe" talks in Brussels. The two sides finally reached agreement on the above three core issues, which removed obstacles to the second stage of "off Europe" negotiations.

The first question to be solved in the second stage negotiation is the relationship between the transition period of "off Europe", and then the question of the future bilateral substantive relationship. In the future substantive negotiations bilateral relations, trade negotiations, the rights of the citizens will be a hoe".

According to the rules, Britain will be officially separated from the European Union in March 29, 2019. In September this year, Britain proposed that the European Union could give the UK two years or so as a "transition period" after the UK "de Europe". The EU agreed to discuss a transitional period applicable to the EU's existing rules and regulations with the British side, according to the guidelines for "transition period" negotiations promulgated by the EU summit. During the transition period, the UK must comply with the EU's legal provisions as members of the EU, but can not participate in EU decision-making.

The guidelines say during the transition period, the current EU budget, management, supervision, judicial and other regulations will continue to apply in the UK and the European Union, including the European Court of justice jurisdiction; Britain will remain in the customs union and the single European market, abide by the principle of free movement of the single market for goods and services, capital and labor. Comply with EU trade policy, tariff policy, implement the tariff obligations.

Britain -

"Although there is a murmur, the work is still going on."

It is no doubt a good news for the British government that the "deo" negotiations are finally going to open a new page. British Prime Minister Teresa May told British media 17 days that the past 10 days were "watershed" in the "off Europe" negotiations. The British government is now starting to establish an in-depth "special" partnership with the European Union. "Although there is a murmur, the work is still going on." Teresa May said.

One of Teresa Meti's "murmur" was a "out of control" vote a few days ago. On the evening of 13 local time, the house of Commons voted to adopt an amendment. It agreed that in the exit EU act, the final agreement on "off Europe" negotiated between the British government and the European Union must be passed by Parliament. This not only means that the British Parliament will have a substantive vote on the "off Europe" agreement, but also greatly limits the British government's role in the "off Europe" negotiations. Teresa Mei was at the EU summit in Brussels 14 days ago.

British media reported that, although Teresa may admit to this amendment vote but she was disappointed, for promoting the "Europe off" the negotiation process is very relaxed, "said negotiations are on track". In her speech at the EU summit, she tried to downplay the loss of the government in the vote.

In view of the British Parliament recently passed the bill will "take off Europe" the final decision from the government to the recovery of Parliament, the EU requires all UK commitments must be the first stage of negotiations as soon as possible and complete practice, will be transformed into legal terms, this is the premise of the second phase of the negotiations to move forward.

Ian Begg, a professor at the European Research Institute of London School of Economics and Political Science, said in an interview with our reporter that the outcome of the amendment will not have much impact on the European Council's resolution and the "de European" process. "The vote reflects the embarrassment of the British government, but the European Union has been aware of the political weakness of the British government, especially the prime minister, Teresa May. As a result, this vote and a similar situation that may arise in the future will not affect the European Council to a large extent. " Ian Begg said.

Public opinion -

The smooth "off Europe" will still face a lot of difficulties

Some analysts pointed out that the two sides to get the successful opening of the next stage of the negotiation, but from the final smooth "off Europe" will still face many difficulties.

Ian Begg said that, at the moment, although Britain and the EU have been