The European Union’s decision-making process is shaped by a vast network of interest groups, from NGOs and trade associations to corporate lobbyists and think tanks. With over 13,000 registered entities, the EU’s Transparency Register sheds light on who influences legislation—and how.
By Aleksandra Krzysztoszek (EURACTIV.pl)
The EU institutions work with many groups and organisations that represent specific interests and engage in lobbying. This is a legitimate and even essential part of the decision-making process. Working with such groups helps the EU “reflect people’s real needs,” as the European Parliament points out.
Interest groups working with the EU institutions not only lobby for specific legislation, but also – and most importantly – provide the EU with expert knowledge in various fields such as the economy, society, the environment and science. They can therefore play a crucial role in the dialogue on which the democratic system is based, as reflected in the Treaty on European Union.
“The institutions shall, by appropriate means, give citizens and representative associations the opportunity to make known and publicly exchange their views in all areas of Union action. The institutions shall [also] maintain an open, transparent and regular dialogue with representative associations and civil society,” states Article 11 of the TEU.
The EU legislative process often begins with seminars, debates, and other events organised by EU institutions or stakeholders to discuss regulatory needs and past efforts in the area.
Working groups within the European Commission – composed of experts, business representatives and NGOs – play a key role in drafting initial legislative proposals. This stage is crucial because stakeholders can shape the direction of future policy by participating in discussions, exchanging views and providing expertise.
Lobbying takes different forms in different EU institutions. In the European Parliament, lobbying organisations identify MEPs with the greatest influence on a particular piece of legislation, such as rapporteurs, shadow rapporteurs, and chairs or members of relevant parliamentary committees.
Lobbyists then provide these MEPs with analyses, reports and other materials designed to shape their positions on specific issues. Their goal is to highlight the benefits or risks of proposed regulations from the perspective of the industry they represent.
Interest groups also organize conferences, seminars and workshops in Brussels or Strasbourg – where the European Parliament holds its plenary sessions – and invite MEPs to attend. These events provide lobbyists with direct access to decision-makers.
At the Council of the EU, interest groups focus on engaging with the permanent representations of member states in Brussels, presenting arguments and demands that can be raised during discussions in Council working groups or at ministerial meetings.
Lobbying organisations closely monitor how individual countries position themselves on various legislative proposals and their specific provisions. This allows them to fine-tune their strategies and focus on states whose support or opposition could make or break a proposal.
Interest groups also operate at the national level, influencing the formation of government positions before they are presented in Brussels.
The European Parliament, the Council of the European Union, and the European Commission share a joint Transparency Register, reflecting their commitment to openness and transparency. This register provides accessible information on lobbying activities directed at EU institutions, along with statistical data on all registered entities.
The Transparency Register provides detailed information on interest groups active within EU institutions, along with statistical data on all registered entities.
While registration is generally voluntary, interest group representatives are encouraged to sign up if their activities influence policy-making, implementation, or decision-making within the EU. However, each institution has its own additional rules, which in some cases make registration a prerequisite for participating in certain activities.
For example, registration is required to obtain a pass granting access to the European Parliament, speak at public committee hearings, and support or take part in intergroup and informal parliamentary group initiatives.
Registering also offers advantages to interest groups, such as access to notifications about European Parliament committee activities relevant to their work, the ability to co-organize events, and eligibility to apply for the Parliament President’s patronage. The register is jointly managed by the European Parliament, the Council of the European Union, and the European Commission.
Every Member of the European Parliament (MEP), EU Commissioner, and EU official is required to disclose scheduled meetings with representatives of interest groups covered by the Interinstitutional Agreement on the Transparency Register or with public authorities from non-EU countries. This information must be made available online.
They must report every meeting, whether in person or remote, that relates to their parliamentary work—such as a report, opinion, resolution, or debate in the European Parliament—if the meeting is intended to influence EU policy or decision-making on behalf of an interest group.
Additionally, rapporteurs for legislative acts are required to include in their reports or opinions a list of entities or individuals who have provided input on the subject. This list is published alongside the report once it has been adopted by the relevant committee. “This allows MEPs to see whose views have been considered before the final vote in Parliament,” the European Parliament explains.
Publishing this list is separate from the obligation to disclose meetings with interest group representatives. However, it enables rapporteurs to supplement their declarations regarding such meetings.
During legislative work, MEPs form intergroups—informal cross-party groups that facilitate exchanges on specific topics among themselves and with civil society.
Only interest groups registered in the Transparency Register are allowed to participate in intergroup activities, offer support, or co-organise their events.
Intergroup chairs are required to submit annual declarations detailing any support received, whether financial or non-financial.
Meanwhile, the European Commission has introduced new rules, effective from January 1 of this year, extending Transparency Register requirements to all senior Commission staff regarding their meetings with interest group representatives.
Only registered groups are permitted to meet with Commissioners, their cabinet members, and senior Commission officials, including Director-Generals.
The European Union’s Transparency Register was launched on June 23, 2011. As of December 2024, it included 13,182 registered interest groups. Among them, 8,919 represented their own interests or those of their members, 3,785 had no commercial interests, and 536 advocated for the specific interests of their clients.
The largest categories were non-governmental organizations, platforms, and networks (3,643), followed by businesses and corporate groups (3,509) and trade and industry associations (2,650).
The register also included 1,000 trade unions and professional associations, 597 think tanks and research institutions, 534 consultancy firms, 336 academic institutions, 182 public entities, 132 self-employed individuals, 75 law firms, 48 organisations representing churches and religious groups, and 531 other entities.
Belgium had the highest number of registered entities (3,527), followed by Germany (1,860), France (1,344), the Netherlands (881), and the United Kingdom (877).
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