Most Council decisions are not actually made by ministers — they are prepared in advance by COREPER (the Committee of Permanent Representatives). Understanding how COREPER, working parties, voting, and the Presidency work is essential for the EPSO exam — and for working in EU institutions.
1. How Council Decisions Are Really Made
By the time a text reaches ministers at a Council meeting, most issues have already been resolved at lower levels. The decision-making flows upward through three levels:
⚙ Council Decision-Making Levels
Level 3
Ministers (Council Meeting)
Political decisions on contentious "A" items — but most items arrive as "A points" (pre-agreed). Ministers focus only on unresolved "B points".
↑ unresolved issues only
Level 2
COREPER I & II
Committee of Permanent Representatives (ambassadors). Reviews working party outcomes, resolves most political issues, sets Council agendas. Meets weekly.
↑ unresolved issues only
Level 1
Working Parties (~150 groups)
Technical experts and diplomats from member states. First-level scrutiny of Commission proposals. Most text is agreed here.
2. COREPER — The Committee of Permanent Representatives
COREPER (from French: Comité des Représentants Permanents) is the most important preparatory body of the Council. It is composed of ambassadors of the member states to the EU (permanent representatives).
COREPER is split into two formations:
COREPER II (Ambassadors)
- Composed of the Permanent Representatives themselves (ambassadors)
- Deals with higher-profile, more political matters
- Prepares: GAC, FAC, ECOFIN, JHA
- Also prepares European Council meetings
- Presided over by the ambassador of the country holding the Presidency
COREPER I (Deputy Ambassadors)
- Composed of the Deputy Permanent Representatives
- Deals with more technical and sectoral matters
- Prepares: EPSCO, AGRI, COMPET, TTE, ENVI, EAC
- Meets twice a week (Wednesdays and Fridays)
A-points and B-points
- A-points: Items pre-agreed at COREPER/working party level → adopted by ministers without discussion (rubber-stamp). Typically 70-80% of all Council decisions.
- B-points: Contentious items requiring ministerial debate and political negotiation.
Special Council body — SCA (Special Committee on Agriculture): The Agriculture and Fisheries Council is prepared not by COREPER but by the Special Committee on Agriculture (SCA) — a body of senior agricultural officials. This is an important exception to the COREPER rule.
3. Voting in the Council
Qualified Majority Voting (QMV (Qualified Majority Voting)) — The Standard Rule
Since Lisbon, QMV is the default voting rule in the Council for most legislative matters. The "double majority" system requires:
Double Majority — BOTH conditions must be met simultaneously:
55%
of member states
(15 out of 27)
AND
65%
of total EU population
=
✓
Qualified Majority Reached
Blocking minority: At least 4 member states representing more than 35% of the EU population can block a QMV decision. This prevents the largest states from always outvoting smaller ones.
When Unanimity is Required
Unanimity (all 27 members must agree, abstentions count as not blocking) is required for sensitive areas:
- CFSP (Common Foreign and Security Policy) — Common Foreign and Security Policy (Art. 31 TEU)
- Taxation — direct and indirect tax harmonisation
- Constitutional matters — treaty revision, enlargement, EU own resources
- Multiannual Financial Framework (MFF (Multiannual Financial Framework)) adoption
- Some AFSJ (Area of Freedom, Security and Justice) matters (e.g. family law, operational police cooperation)
- When the Council wants to amend a Commission proposal (must be unanimous)
| Voting Rule | Threshold | Used for |
|---|
| Qualified Majority (QMV) | 55% of states + 65% of population | Most legislative decisions (default) |
| Unanimity | All 27 members (abstentions allowed) | CFSP, tax, constitutional matters |
| Simple Majority | 14 out of 27 | Procedural matters, Council Rules of Procedure |
| Reinforced QMV | 72% of states + 65% of population | When Council acts without Commission proposal |
4. The Rotating Council Presidency
The Presidency of the Council rotates among member states every 6 months. The presidency country:
- Chairs all Council meetings (except FAC)
- Sets the agenda and work programme for its 6 months
- Brokers compromises between member states
- Represents the Council in negotiations with the European Parliament
🗓 Recent and Upcoming Presidencies
🇨🇾
Jan–Jun 2026
Cyprus
CURRENT
Trio Presidency: To ensure continuity, presidencies work in "trios" — three consecutive presidencies coordinating their 18-month programme. This prevents each presidency from starting from scratch.
Key Terms
COREPER
Committee of Permanent Representatives — ambassadors of member states preparing Council meetings. COREPER II (ambassadors) handles political files; COREPER I (deputies) handles technical files.
Qualified Majority Voting (QMV)
The standard Council voting rule: 55% of member states (15/27) representing 65% of EU population. Introduced in current form by the Lisbon Treaty.
Blocking minority
At least 4 member states representing more than 35% of population can block a QMV decision.
A-point / B-point
A-points are pre-agreed items adopted without debate. B-points require ministerial discussion. Typically 70-80% of decisions are A-points.
Reinforced QMV
72% of member states + 65% of population — applies when the Council acts without a Commission proposal (e.g. amending it).
Trio Presidency
Three consecutive 6-month presidencies that coordinate to provide continuity over an 18-month period.