By Alberto Mencarelli.
In the landmark paper “Attention Is All You Need” (Vaswani et al., 2017), the concept of transformers fundamentally changed the landscape of AI, particularly in how machines understand and generate human language through mechanisms like Generative Pre-trained Transformers (GPT) and Retrieval Augmented Generation (RAG). These breakthroughs not only represent significant technological strides but also strikingly parallel the intricate processes in parliaments. Just as transformers learn and adapt by absorbing and synthesizing vast amounts of information, so do parliamentary systems refine legislative measures by assimilating diverse data and viewpoints, underscoring a shared theme of progressive enhancement and complex data integration in both realms.
The essence of this analogy lies in the conceptual similarity between the AI ‘attention’ mechanism and the parliamentary ‘refinement’ process, where both prioritize and contextualize information to produce nuanced outcomes. The refinement process in parliaments evolves through stages: from committee to plenary, and across chambers in bicameral systems – each procedural step meticulously crafted to enhance output. In parliamentary terms, refinement involves a multifaceted iterative process that ensures broad deliberative bases, adversarial but inclusive consideration of diverse views, and the scrutiny of legislative provisions based on data-driven assessments. The similarity between AI systems and parliamentary processes shows that both share a fundamental approach: just as AI uses attention and retrieval mechanisms to process information, parliaments use iterative, knowledge-based methods to develop legislation. Thus, the dynamics of generative AI not only mirror, but also offer new perspectives on traditional methodologies of parliamentary activity, suggesting a unique intersection between technology and governance.
In the digital age, turning data into meaningful action is the cornerstone of progress. Generative AI, with its sophisticated attention mechanism, offers a new lens through which to examine the complexities of parliamentary discussions, identifying connections, trends, and implications that may elude human analysis. This does not mean replacing the human process, but rather enriching it, providing political actors with advanced tools to address contemporary challenges with a deeper understanding.
Linguistic Foundations: Bridging Parliaments and Large Language Models
At the core of both parliamentary procedure and Large Language Models (LLMs) lies a deep appreciation for the nuance and power of language, serving as the foundation for creating, disseminating, and negotiating knowledge.
The parallels between the linguistic dynamics of parliaments and those of LLMs are striking and suggest a natural synergy. Both domains achieve their goals through the meticulous refinement of language, optimizing their outputs to meet pre-defined objectives. This common linguistic underpinning presents a compelling case for the integration of LLMs into parliamentary processes. Such a union promises to enhance the clarity, precision, and accessibility of communication – a cornerstone upon which effective governance is built.
Leveraging AI can streamline legislative workflows and inspire explorations at the intersection of technology and parliamentary practices. By integrating technology and linguistics, we unlock innovative opportunities that could dramatically transform how parliaments and legislatures operate.
Ensuring Diversity, Inclusivity and Depth in AI-Augmented Parliamentary Processes
In recent years, pioneering experiments in some parliamentary settings have laid the groundwork for a more integrated approach to the use of AI tools (see this Popvox Foundation report for an updated overview of current international experiences). Real-time captioning of parliamentary proceedings, automated classification and transcription of policy documents, and the early stages of conversational document search are at the forefront of this integration. The leading parliaments include the U.S. Congress, whose House Subcommittee on Modernization issues regular flash reports on AI strategy and implementation (most recently in December 2023), the Brazilian Chamber of Deputies, which has developed the Ulysses artificial intelligence suite, and the Estonian Parliament. But other parliaments have launched or plan to launch pilots in the coming months, as in the case of the Italian Chamber of Deputies, which recently adopted a report.
Parliaments are on the cusp of a transformative journey, blending deep-rooted traditions with cutting-edge AI technology. While still early days, a promising path is unfolding. As AI rapidly evolves, it’s crucial for parliaments worldwide to share best practices and develop common approaches. This collaboration is key to tackling the challenges of this significant shift.
AI’s advanced language models can revolutionize how laws are made. These models are not only adept at producing well-crafted text but also at ensuring laws reflect a broader range of societal objectives and values. Such tools could make legislation more inclusive, weaving minority perspectives into the legislative narrative. By enhancing the drafting phase, AI could lead to laws that represent a more diverse range of opinions, softening the impact of decisions made by slim majorities.
The implications of generative AI in parliamentary contexts are profound, offering numerous possibilities for its application, such as:
- Predictive Analysis: AI can forecast voting outcomes based on historical data, aiding in strategic negotiation planning.
- Deliberative Refinement: Through quantitative analysis of debate intensities and MP motivations, AI can foster a more inclusive deliberative process. Projects like Inclusive.AI and the latest research highlights AI’s role in enriching democratic deliberation by capturing a broad range of opinions and value preferences. In an effective parliamentary AI system, the technology should not just simplify the aggregation of viewpoints but also ensure that the depth and variation of these viewpoints are preserved.
- Moderation and Persuasion: AI moderation tools can enhance the quality and inclusiveness of debates, especially in committees or remote settings. According to empirical evidence, LLMs have the potential to enhance conversational persuasiveness and provide real-time, evidence-based recommendations that can improve participants’ perception of feeling understood in conversations. This, in turn, has the potential to improve the quality of conversations and reduce political divisiveness, without altering the content of the conversation (Argyle et al., 2023).
- Data Analysis and Policy Simulation: Generative AI has the capability to analyze vast amounts of data from diverse sources and formats to identify pertinent variables, causal relationships, trends, and anomalies. This capability can be utilized to simulate alternative policy scenarios and predict the potential effects of public policies, while considering various factors and uncertainties.
- Participatory Democracy: AI can gauge public opinion on legislative proposals, capturing not just the majority view but the intensity of support or opposition.
- Hybrid Proceedings Facilitation: With the shift towards hybrid parliamentary models, AI offers tools for virtual participation, document sharing, real-time translation, and even emotional tone recognition, enhancing session efficiency and accessibility of hybrid sittings by addressing the challenges of virtual engagement.
Integrating AI into parliamentary processes could mark a major shift towards more efficient and inclusive governance.. By leveraging AI’s capabilities, parliaments can navigate the complexities of modern governance, ensuring that legislative processes are both reflective of and responsive to a broader range of societal needs and perspectives.
AI in Parliaments: Opportunities, Risks, and the Democratic Balance
As we contemplate the integration of AI into parliamentary processes, it becomes apparent that this endeavor is both promising and fraught with complexities. The ethical and the procedural implications of these tools for parliaments can shape entirely new functions and attributes. The potential of AI to enhance efficiency and decision-making is counterbalanced by significant ethical and operational challenges. Concerns regarding privacy, data protection, and the transparency of AI-driven decisions highlight the need for rigorous scrutiny. Furthermore, the importance of maintaining accountability in the face of AI’s potential errors or biases cannot be overstated. The task of customizing AI to complement political processes, while ensuring that its decisions remain accessible and understandable to the general public, underscores the critical balance between innovation and the foundational values of democracy. A notable challenge is the risk of AI being manipulated or misused, particularly in an age characterized by advanced cyber threats. In this regard, it seems crucial that parliaments strive to ensure that the introduction of AI tools in their processes is accompanied by maintaining full control over the AI technologies deployed in order to establish sufficient levels of technological sovereignty.
Parliaments are thus confronted with a pivotal challenge: to adopt AI through the development of stringent policies, the conduct of ethical testing, and the provision of comprehensive training. The stakes are significant, as failure to effectively integrate AI could result in falling behind in the ongoing technological revolution, potentially compromising the resilience and adaptability of parliamentary ecosystems.
Embracing AI in parliaments thoughtfully yet boldly requires striking a balance between innovation and democratic integrity, safeguarding the core values of these vital institutions.
About the author
Dr Alberto Mencarelli is a parliamentary official in the Italian Chamber of Deputies. He gained his PhD in constitutional law from Sapienza University of Rome.