Somebody - almost anybody - makes a suggestion to the Commission. It could be the Commission itself, MEPs, ministers or civil servants or ambassadors or EU citizens individualy. A petition by a million EU citizens from a required number of member states is guaranteed to be heard.
The
Commission checks that the topic is within an EU competence. If so, it sets in motion consultations and other processes needed. Consultations will typically go through one or more of the
MEPs' parliamentary committees. During and after this, the Commission develops proposed legislation, trying to ensure that it will satisfy all members' governments.
Alert member states will know all this. Even so, the Commission ensures that the national parliaments of
all member states are informed of proposals a minimum of 8 weeks before they are put to the vote in the EU.
The proposals are then put to the Council (ministers of member states) and in most cases to the Parliament (MEPs), who vote independently on the matter. Only if both these bodies agree can the proposal become law.