AI and the Role of Parliament
A background article looking at how MPs can use their three main roles to address fast-moving AI development, and how parliament can configure its structures and services to support them.
A race to the AI future has begun and democratic institutions are needed to help harness the positive aspects, mitigate the risks and ensure the public has a voice in the discussion. Parliaments are going to be pivotal as the bridge between the public and decision-making on AI. They will need to legislate on AI, shape policy and regulatory approaches, and ensure accountability for its development and deployment. In this, speed and adaptability will be key in addressing today's challenges and those on the horizon.
This post will introduce the tools at the disposal of MPs as they navigate the impact of transformational AI and mitigate risks to democracy and society. The focus in this newsletter is always on emerging evidence. You’ll see examples of how parliaments are taking action and can access further examples in this file.
Lawmaking
There is a rush to begin to regulate the development, deployment and application of AI. However, law advances incrementally while the technology is evolving exponentially. As an illustration, the first draft of the EU’s AI Act – the world’s first comprehensive AI regulation – didn’t mention generative AI and at present there is little specific regulation on AI at national levels.
There is little time to waste. MPs must devise legislative measures to remedy risk and public concerns around AI on issues including privacy, data protection, transparency, bias mitigation and accountability of AI models and products. In harnessing AI development, MPs will also need to scrutinise provisions in the budget for AI research and development, and funding for measures such as AI safety and public education. As new capabilities of AI are discovered all the time, it likely needs distinct regulatory treatment connected with ongoing research. Close ties between parliament, scientists and research bodies are vital, and parliaments at national levels will need to be engaged with the global discussion on AI regulation.
Emerging evidence: How are parliaments taking action?
Parliaments are increasingly considering legislation that addresses emerging risks to democracy and society from AI, both comprehensive legislation on AI and covering individual risks and use cases.
In Brazil, the President of the Senate has introduced a Bill to regulate Artificial Intelligence. The Bill establishes citizen rights, prohibiting AI discrimination and creating institutional arrangements for inspection and supervision of AI systems.
South Korea’s National Assembly is considering an ‘Act on Promotion of AI Industry and Framework for Establishing Trustworthy AI’. This act intends to consolidate seven prior AI laws into a comprehensive framework, identifying high-risk AI uses and setting ethical guidelines.
On specific risks, few countries have laws on AI deep fakes. China has begun to mandate that AI-generated material bears digital signatures or watermarks. A Bill in Australia targets fines for platforms that host misinformation.
Oversight
Solid checks and balances will be required as AI is increasingly introduced into society. Parliament’s oversight role will be key in identifying policy solutions that maximise the AI benefits and minimise risks and in holding governments and the AI industry to account.
Oversight tools available for MPs include obtaining information from government through oral and written questions, participating in debates, conducting inquiries in committees and organising hearings. Committee inquiries can play an important role in evaluating AI’s influence across various sectors and policy areas and recommending policy and legislative change. Committees also provide a conduit for regular connections to academia, scientists, industry, the media and civil society. Publicising reports and making hearings public is one measure that can help ensure public trust in democratic institutions as societies are increasingly shaped by AI.
Various parliaments have initiated inquiries about AI. In the Philippines, Senator Imee Marcos called for an inquiry into the effects of AI on the labour market, citing the importance of parliamentary inquiries in helping educate parliamentarians about AI developments. High profile Senate hearings in the US have engaged industry and scientists in questions around AI risks and regulatory options.
MPs across the world are using questions to understand how government is addressing AI. In Hong Kong, Legislative Council member Hon Yung Hoi-yan submitted a written question on the government’s assessment of the impact of ChatGPT on different industries and how the government planned to upskill the population in use of generative AI.
Representation
Democratic dialogue will be needed to shape AI governance, and MPs in their representation role provide the means for the public to have a voice in AI-related policy and legislation. Public meetings, surveying, site visits and social media engagement can help MPs listen to the concerns, values and diverse perspectives of their constituents. This provides valuable evidence for MPs to undertake their lawmaking and oversight roles.
MPs also have a unique platform to raise public awareness about AI. Where harms are emerging, the best defence before legislation is enacted is to make the public aware of them. At the local level, MPs can work together with the media, education bodies, academia and civil society to contribute to the public discourse around technological change. An example is the need for public media literacy initiatives to counter risks such as AI-generated disinformation and deep fakes.
How can parliaments support MPs?
We will need well-resourced and informed parliaments in the face of the potential social, economic and political disruption from AI. How can parliament configure its structures, policies and services to address such changes?
1) Support cross-party groups specialising in AI
Parliamentary cross-party groups, or caucuses, bring together MPs from across the house to share information, discuss policy issues and channel common concerns. Specific groups on AI can provide a conduit between parliamentarians, science, academia and industry experts – helping capacitate MPs, provide a forum for new ideas on policy and legislation, and increase public understanding of AI governance. They can also be a valuable source of expertise when engaging in international forums and inter-parliamentary activities.
To be successful, cross-party groups need a clear mission and objectives - for example, is the purpose just to facilitate dialogue or impact policy and legislation – ability to engage with stakeholders and sufficient financial and human resources from the parliamentary administration.
In Canada, a cross-party group of MPs in the House of Commons and Senate is addressing emerging technologies such as AI and blockchain. The purpose is to act as a ‘nimble forum’, helping keep MPs up to date on developments and respond to the slow pace of passage of regulation.
In Germany, the Bundestag set up a Study Commission on AI to work with experts on policy approaches. The commission plans to report on suggested actions to be taken by parliament.
In Japan, Members of the National Diet established a Project Team on Evolution and Implementation of AI, which will collaborate with academia and industry and help formulate policy ideas, including on funding for AI research and development.
2) Specialise committees
Specialised parliamentary committees or sub-committees may need to take on a greater and more prominent role in AI governance. This specialisation can help MPs develop technical understanding in complex aspects of AI that can allow for more detailed scrutiny of policy and legislation. As AI is a multi-use technology, specialised committees can also help develop understanding across parliament of AI development and integrate AI issues across other sectoral committees.
The Committee for the Future in Finland helps the parliament to keep on top of technological advances. They invite futurists, academics and NGOs to hearings and engage with other committees, helping the parliament to keep up to speed with AI developments. They also host similar committees in other parliaments, strengthening an inter-parliamentary approach to AI governance.
In the Netherlands, the House of Representatives established a temporary Committee on the Digital Future which examined how parliaments in other countries deal with digitisation. The committee reported on how the house can increase its knowledge on emerging technology, recommending a permanent Committee for Digital Affairs.
3) Hold public expert hearings
Hearings with experts can clarify the complexities of AI, and connections to digital rights organisations, media outlets, and citizen activists can identify challenges, opportunities and risks. Making hearings public and publicising their outcomes builds public understanding and trust and helps foster an inclusive dialogue in society on AI.
In Georgia, the Economy and Economic Policy Committee held an expert roundtable on ‘Determining the Artificial Intelligence Strategy for Georgia’. Part of the focus was on increasing public awareness on AI.
In Bundestag in Germany, the Committee for Digital Affairs sought expert testimony on generative AI, asking questions of scientists and industry experts in the United States.
In Israel, the Knesset Science and Technology Committee held an expert hearing discuss the dangers and opportunities surrounding AI with the participation of representatives of industry, academia and government ministries.
In Serbia, the National Assembly held a public hearing on ‘Artificial Intelligence and man in the new digital era’ involving government, academia and civil society representatives, with support from UNDP.
4) Provide public education on AI
Parliaments, as the bridge between the public and decision-making, are ideally placed to strengthen the public discussion on AI and other emerging technology. As well as public hearings, parliament can configure its educational work to include AI awareness campaigns, including on social media, meetings around the country and educational initiatives on AI governance.
In Egypt, the Education Committee of the Egyptian Senate answered a proposal from a member of the Coordination Committee of Party Youth leaders to issue a document on the ethics and control of AI to help inform the public.
5) Support opportunities for MPs to engage internationally
Coordination across democracies at the international level is essential to develop well-aligned AI regulations rooted in democratic values and human rights. Parliamentary diplomacy also offers a channel for international dialogue across the global north and south on emerging impacts of AI. For example, faced with risks around electoral interference using AI, inter-parliamentary engagements can help share information, identify areas of vulnerability, monitor foreign activity and share approaches for deterring interference.
At a regional level, ParlAmericas Open Parliament Network has launched a new inter-parliamentary working group on AI and digital rights. The group has discussed impact on society from AI and aims to influence the international debate on AI governance.
The OECD thematic parliamentary group on AI provides a network for interested MPs and education on technical and policy issues concerning AI, with the aim of informing national legislative processes.
In France, an Investigative Committee on Foreign Interference of the National Assembly invited Taiwan’s Minister of Digital Affairs, Ms. Audrey Tang to share experience in combating foreign digital interference and building digital resilience. Minister Tang stressed the importance of partnerships in ‘global digital democracy’.
6) Specialise services from parliamentary administrations
Parliamentary administrations can lead on specialising staff in research and committee departments on AI, making connections to external organisations such as academia and think tanks, and integrating AI into parliamentary education programmes. Funding and support for MPs in their representation role is also needed as they engage the public on AI.
Administrations have a key role providing or sourcing capacity development support for MPs, including on the basics of the technology, its capabilities, potential risks and comparative approaches to regulation. This type of support can be delivered during induction for new MPs with ongoing professional development helping MPs keep up to date with developments.
In the US, Congressional staffers have been sent on training at Stanford University, studying what AI means for international security, the future of work and healthcare; and gaining hands on experience using AI tools.
In all the above areas, there is an important role for international development support, which can:
Facilitate access to expertise
Provide capacity development to MPs across jurisdictions
Support peer-to-peer learning across parliaments in the global north and south
Share updated research and evidence on AI’s impact, eg. through an ‘observatory’ approach
Help parliaments introduce democratic innovations harnessing AI
These are a few initial ideas, and we’ll explore the role of development support further in future posts.