The civil servants draft the text of a bill and an accompanying explanatory memorandum. They explain in detail why the new law is deemed necessary and what its contents are. The minister has the final responsibility for these draft texts. The minister also has to convince his fellow-ministers that the bill is necessary and has to be introduced in the House of Representatives.

The assembly of all the ministers, the Council of Ministers, decides on the introduction of the bill. If the Council of Ministers agrees, the bill is introduced in Parliament. However, the Cabinet has to ask advice from the Council of State first. The Council of State checks whether the bill is well-drafted and not unconstitutional. The advice from the Council of State is followed by a response from the minister and by an amendment of the text, if necessary. After this, the proposal for the new law is introduced in the House of Representatives by "Royal Message".