Mining EU consultations through AI

Abstract

Consultations are key to gather evidence that informs rulemaking. When analysing the feedback received, it is essential for the regulator to appropriately cluster stakeholders’ opinions, as misclustering may alter the representativeness of the positions, making some of them appear majoritarian when they might not be. The European Commission (EC)’s approach to clustering opinions in consultations lacks a standardized methodology, leading to reduced procedural transparency, while making use of computational tools only sporadically. This paper explores how natural language processing (NLP) technologies may enhance the way opinion clustering is currently conducted by the EC. We examine 830 responses to three legislative proposals (the Artificial Intelligence Act, the Digital Markets Act and the Digital Services Act) using both a lexical and semantic approach. We find that some groups (like small and medium companies) have low similarity across all datasets and methodologies despite being clustered in one opinion group by the EC. The same happens for citizens and consumer associations for the consultation run over the DSA. These results suggest that computational tools actually help reduce misclustering of stakeholders’ opinions and consequently allow greater representativeness of the different positions expressed in consultations. They further suggest that the EC could identify a convergent methodology for all its consultations, where such tools are employed in a consistent and replicable rather than occasionally. Ideally, it should also explain when one methodology is preferred to another. This effort should find its way into the Better Regulation toolbox (EC 2023). Our analysis also paves the way for further research to reach a transparent and consistent methodology for group clustering.