The real problem with the democratic deficit is how the Union works, that is, the whole business of intergovernmentalism. The reality is that most legislation at European Union level is decided by the Council of Ministers in private or by prior negotiation. This is in complete contrast to the way national government works. In this country there is less division of powers than applies in most other countries where the Executive and the Legislature can be on occasion almost the same thing. We know the Executive or the Government in Ireland effectively makes all decisions in relation to legislation and that the Houses of the Oireachtas effectively hold it to account only to the extent that Ministers are required to come in and shepherd legislation through the Houses.