How EU Laws Are Made
The ordinary legislative procedure explained step by step.
Who proposes EU laws?
The European Commission is the only EU institution that can propose new laws. This is called the "right of initiative." The Commission drafts a legislative proposal after consulting experts, stakeholders, and sometimes the public.
The ordinary legislative procedure
Most EU laws follow the ordinary legislative procedure (formerly called co-decision). Both the European Parliament and the Council of the EU must agree on the text for it to become law. Neither can act alone.
Step 1: Commission proposal
The Commission publishes a legislative proposal. This includes the legal text, an impact assessment explaining why the law is needed, and an explanation of the expected effects.
Step 2: Parliament committee
The proposal goes to the relevant parliamentary committee. A rapporteur is appointed to lead the work. The committee debates the proposal, proposes amendments, and votes on a committee report.
Step 3: First reading
The full Parliament votes on the committee report. If Parliament and Council agree on the same text, the law is adopted at first reading. About 80% of EU laws are adopted at first reading.
Step 4: Second reading and conciliation
If Parliament and Council disagree, a second reading takes place. If they still cannot agree, a conciliation committee with members from both institutions tries to find a compromise.
Step 5: Adoption and publication
Once both institutions agree, the law is signed and published in the Official Journal of the EU. Regulations apply directly. Directives must be transposed into national law by each member state.