How does a law get made in the European Union?
Most EU legislation passes through the Ordinary Legislative Procedure (formerly co-decision), which requires agreement between the European Parliament and the Council of the EU — giving both elected MEPs and member state governments a formal veto over EU law.
Trust & Coverage
- Page Type
- Scenario explainer
- Last Updated
- April 4, 2026
- Sources
- 2 linked
Scenario pages are procedural explainers linked back to relevant institutions, offices, and countries.
They are meant to explain formal political processes, not speculate on current events.
Step-by-Step Process
Step 1
The Commission proposes legislation
Only the European Commission has the right to formally propose legislation. MEPs and member states can request proposals, but the Commission controls the legislative agenda. The Commission drafts the text based on treaty obligations, policy priorities, and extensive stakeholder consultation.
Step 2
Parliament and Council each read the proposal
The proposal goes to both the European Parliament and the Council of the EU simultaneously. The Parliament debates and amends the text in committee and then in plenary. The Council — composed of relevant ministers from all 27 member states — develops its own position. In the first reading, each institution adopts its position. If they agree, the act is adopted immediately.
Step 3
Second readings and conciliation if needed
If Parliament and Council disagree after first readings, a second reading begins. Parliament can accept the Council's position (law passes), amend it, or reject it. If the Council rejects Parliament's second-reading amendments, a Conciliation Committee of equal numbers from both institutions tries to agree a joint text within six weeks.
Step 4
Third reading and possible failure
If the Conciliation Committee agrees a joint text, both Parliament and Council must vote on it without amendment within six weeks. If either rejects it, the proposal falls. In practice, most legislation is resolved through informal "trilogue" negotiations between Parliament, Council, and Commission before formal readings are completed, making the published procedure faster in reality than in theory.
Sources
- European Parliament: Legislative Procedures
https://www.europarl.europa.eu/about-parliament/en/powers-and-procedures/legislative-powers
- Council of the EU: Decision-Making
https://www.consilium.europa.eu/en/council-eu/decision-making/ordinary-legislative-procedure/