16/12/2025
The European Council is often described as the collective leadership of the EU. Bringing together the EU’s heads of state or government, it sets the general political direction and strategic priorities of the Union. But who really controls this powerful institution?
Unlike the European Commission, the European Council does not propose legislation and cannot be dissolved by the European Parliament. This often makes its role, influence and accountability difficult for citizens to understand.
The European Parliamentary Research Service (EPRS), the European Parliament’s internal research service, is an essential ally in democratic scrutiny. Through in-depth analyses available to the public, the EPRS helps MEPs monitor, assess and scrutinise the activities of the European Council and its members.
Below are some of the main aspects of the European Council’s activities covered by EPRS research, which provide a better understanding of how this institution works and how it can be held accountable.
Discover also how can the European Parliament hold the Commission accountable.
1. Monitoring EU leaders
The European Council is composed of political leaders whose actions and positions influence decisions taken within the EU. It is therefore essential, from the point of view of democratic accountability, to monitor their behaviour.
Research conducted by the EPRS analyses the role of EU heads of state or government, as well as that of the President of the European Council and the President of the European Commission, in order to better understand how leadership, political positions and alliances influence outcomes at EU level.
2. The party-political dimension of the European Council
EU heads of state or government are not just national leaders. Most of them are affiliated with European political parties, such as the European People’s Party (EPP), the Party of European Socialists (PES), ALDE or the ECR party.
This political affiliation adds an extra dimension to the dynamics of the European Council: how do party loyalties influence negotiations, alliances and outcomes at EU level?
EPRS research explores this dimension in depth, more information here and here.
3. Setting the EU’s political priorities
The European Council plays a central role in defining the EU’s long-term political priorities, often through strategic agendas adopted at the beginning of each institutional cycle. However, several questions remain:
- Where do these priorities come from?
- How are they negotiated?
- And how have the processes evolved over time?
EPRS helps unpack these questions here and here.
4. Inter-institutional relations
Although the European Council has no legislative power, it has considerable influence over the EU agenda, particularly in its interactions with other institutions.
EPRS analysis on inter-institutional relations here and here.
5. Accountability and scrutiny of the European Council
The European Council is accountable in a different way from other EU institutions, both at European and national level. But how are its decisions monitored? And what tools do national parliaments and the European Parliament have at their disposal?
EPRS research on accountability mechanisms here and here.
6. Communication by EU leaders
From press conferences to statements after Council meetings, to posts on social media, EU heads of state or government communicate extensively about their activities within the European Council.
EPRS examines these communication strategies here and here.
7. The role of the European Council President
Finally, EPRS research also looks at the European Council President, a role that has evolved significantly since its creation.
Comparative analysis of European Council Presidents here and here.
8. Long-term institutional analysis
To fully comprehend the European Council, it is not sufficient to examine individual meetings or short-term political debates. It is also necessary to analyse this institution over time.
The EPRS provides a long-term analysis of the evolution of the European Council, examining changes in its role, working methods and political practices, and identifying major trends in EU governance.
Understanding how the European Council works and how it can be held to account is essential for democratic accountability in the EU. By making high-quality research accessible to the public, the European Parliamentary Research Service provides MEPs, civil society organisations and citizens with the tools they need to monitor, question and challenge Europe’s most powerful decision-makers.
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