Three Institutions, One Question: Who Actually Runs the EU?
If you have ever wondered how the EU works, you are not alone. Most people know the EU exists and that it makes rules that affect life across Europe – but who exactly is making those rules, and how? The short answer is: three main institutions share the power, and none of them can act alone. Here is how it all fits together.
The Three Institutions That Matter Most
The EU’s decision-making is split between three bodies, each representing a different set of interests:
| Institution | Who It Represents | What It Does |
|---|---|---|
| European Commission | The EU as a whole | Proposes new laws, enforces existing ones, manages the EU budget |
| European Parliament | EU citizens | Debates and votes on proposed laws, approves the budget |
| Council of the EU | Member state governments | Represents national governments, negotiates and adopts laws alongside Parliament |
The European Commission: The Engine Room
The Commission is the EU’s executive body – think of it as the EU’s government. It is made up of one Commissioner from each of the 27 member states, led by a President (currently Ursula von der Leyen).
The Commission has the exclusive right to propose new EU legislation. No law can start its journey without the Commission putting it forward first. It also acts as the EU’s watchdog – it can take member states or companies to court if they break EU rules. That is why you hear about the Commission fining Google or investigating Apple – it is doing its enforcement job.
The Commission is not elected by citizens directly. Commissioners are nominated by national governments and approved by the European Parliament.
The European Parliament: The Democratic Check
The European Parliament is the only EU institution directly elected by EU citizens. Elections happen every five years – the last one was in June 2024. There are 720 Members of the European Parliament (MEPs), and the number from each country is roughly proportional to its population.
Parliament cannot propose laws on its own – that is the Commission’s job. But it can amend, approve, or reject them. Nothing becomes EU law without Parliament’s agreement. It also has the power to dismiss the entire Commission if it loses confidence in it.
The Council of the EU: The Member States’ Voice
Do not confuse this with the European Council (more on that below). The Council of the EU – also called the Council of Ministers – is where national government ministers meet to negotiate and adopt laws. Which ministers attend depends on the topic: if it is a finance law, finance ministers come; if it is an agriculture law, agriculture ministers attend.
The Council and the Parliament must both agree on a piece of legislation before it becomes law. This back-and-forth process is called the ordinary legislative procedure, and it is how most EU laws are made.
Wait – What Is the European Council Then?
This is where people often get confused. The European Council (without “of the EU”) is a separate body made up of the heads of state or government of all 27 member states – the presidents and prime ministers. They meet several times a year to set the EU’s overall political direction. They do not pass laws directly, but their decisions shape the agenda.
So to recap:
- European Commission – proposes laws, enforces rules
- European Parliament – elected by citizens, votes on laws
- Council of the EU – national ministers, negotiates and adopts laws
- European Council – heads of state, sets political direction
How a Law Actually Gets Made
Here is the simplified version of how EU legislation works:
- The Commission drafts a proposal and submits it
- The Parliament debates it, proposes amendments, and votes
- The Council does the same in parallel
- If they agree, it becomes law. If not, they negotiate until they do (or the proposal is dropped)
- Member states then have a set period to implement the law into their national legal systems
This process can take months or years. The EU AI Act, for example, was proposed in 2021 and did not become law until 2024.
Why Does This Structure Exist?
The design is deliberate. The EU is a union of sovereign countries that have agreed to share certain powers – but no single country or institution is supposed to dominate. The system of checks between the Commission, Parliament, and Council is meant to ensure that laws have broad legitimacy before they apply to 450 million people across 27 very different countries.
Quick Answers
Who is the “president” of the EU?
There are actually several. The President of the European Commission (Ursula von der Leyen) leads the EU’s executive. The President of the European Council (currently António Costa) chairs summits of EU leaders. The European Parliament also has its own President.
Can a member state ignore EU law?
No – EU law takes precedence over national law in areas where the EU has competence. If a country does not comply, the Commission can take it to the Court of Justice of the EU, which can impose fines.
Does every EU law apply in every country?
Most do, but not all. Some countries have opt-outs from specific areas – Denmark, for example, has an opt-out from EU defence policy, and not all EU members use the euro.
How is the EU different from the eurozone?
The EU has 27 member states. The eurozone – countries that use the euro – has 20. Not all EU countries use the euro (Sweden, Poland, Hungary, and others keep their own currencies).