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ONTWERPVERSLAG (2025/2118(INI))

Over de institutionele aspecten van artificiële intelligentie in de context van Europese integratie

AFCO-PR-779285

Commissie constitutionele zaken · Rapporteur: Emmanouil Kefalogiannis

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A draft report by Parliament's Committee on Constitutional Affairs on the institutional aspects of artificial intelligence in European integration. It argues AI governance is a constitutional matter and calls for sustained parliamentary scrutiny, a structured interinstitutional dialogue, and a permanent European Parliament AI Observatory. It supports Parliament's engagement in global AI forums, calls for reflection on a global AI convention, and asks for assessment of AI risks to elections and preparation for reform of European electoral law. It also calls for AI tools to monitor implementation of EU law, for analysis of overlaps and gaps in AI-related instruments, and for medium- to long-term reflection on possible Treaty evolution.

Committee position. The rapporteur proposes that Parliament stress AI governance as a constitutional matter, call for a structured interinstitutional dialogue, establish a European Parliament AI Observatory, support global AI governance engagement and reflection on a global convention, and prepare for reform of European electoral law and possible Treaty evolution.

Key points

  1. Stresses that AI governance is a matter of constitutional applicability affecting public authority, democratic legitimacy and the EU's institutional balance under Article 13 TEU, requiring sustained parliamentary scrutiny.
  2. Reaffirms that the EU's approach to AI must align with the values of Article 2 TEU, including democracy, the rule of law and fundamental rights, and that AI deployment within institutions must remain human-centred.
  3. Calls for a structured and regular interinstitutional dialogue between Parliament, the Commission and the Council on the institutional implications of AI.
  4. Supports Parliament's engagement in multilateral forums such as the UN annual summit 'AI for Good', respecting the Commission's competences and the principle of sincere cooperation under Article 13(2) TEU.
  5. Underlines that AI is a systemic global challenge and that responsible governance requires timely negotiation of a dedicated international convention or treaty on AI at global level.
  6. Takes note of the Council of Europe Framework Convention on AI and considers that further reflection should take place on a global multilateral framework or convention.
  7. Calls for a European Parliament AI Observatory as a permanent analytical structure within Parliament's administration, operating across committees in a budget-neutral manner.
  8. Calls for AI tools to support monitoring and implementation of adopted EU legislation, including identifying national legal acts requiring amendment and detecting inconsistencies, overlaps or risks of legal fragmentation.
  9. Calls for analysis of overlaps, gaps and inconsistencies between AI-related legislative and policy instruments to reduce fragmentation and ensure coherent application.
  10. Calls on the Chair of the AI Board to invite the European Parliament AI Observatory, once established, to the board's meetings to ensure parliamentary scrutiny and interinstitutional coherence.
  11. Calls for systematic parliamentary assessment of AI-related risks to democratic processes, including electoral integrity, with the AI Observatory supporting monitoring of elections and European political parties.
  12. Stresses that the current European electoral legal framework is ill-suited to AI-related challenges and emphasises preparing the ground for reform of European electoral law under Article 223 TFEU.

Who is affected

  • Parliament itself, which would gain a permanent AI Observatory and stronger analytical capacity for scrutiny.
  • The Commission and the Council, which are asked to join a structured interinstitutional dialogue on AI.
  • National parliaments and national competent authorities, with which cooperation on AI governance is to be strengthened.
  • The AI Board, whose Chair is asked to invite the European Parliament AI Observatory to its meetings.
  • Member states, whose implementation gaps in AI-related law are to be addressed and whose electoral processes are affected.

Figures and deadlines

  • 5 September 2024: date the Council of Europe Framework Convention on Artificial Intelligence and Human Rights, Democracy and the Rule of Law was signed.
  • 13 June 2024: date of Regulation (EU) 2024/1689 laying down harmonised rules on artificial intelligence (Artificial Intelligence Act).
  • 9 April 2025: date of the Commission communication 'AI Continent Action Plan' (COM(2025)0165).
  • 8 October 2025: date of the Commission communication 'Apply AI Strategy' (COM(2025)0723).
  • 21 May 2024: date of the Council conclusions on the future of EU digital policy.
  • 20 November 2025: date of the Council conclusions on advancing the International Digital Strategy for the European Union.

Legal basis: Articles 2, 10, 11, 12, 13 and 14 TEU; Articles 16, 114, 173, 179, 180 and 181 TFEU.