Most Common When Least Important: Deliberation in the European Union Council of Ministers

This article contributes to the empirical turn in deliberative democratic theory, by studying the presence of arguing (discussion on the merits) and bargaining in the working groups of the Council of the European Union. It uses a survey of representatives of member states to analyse to what extent, under what circumstances, and by whom, arguing is used. The results indicate that arguing is indeed common in the Council working groups, but also that there is substantial variation. Most arguing is found in intergovernmental policy areas and by the most powerful and well-connected actors. The findings point to the conclusion that higher stakes and political pressure make actors less willing and able to engage in arguing.