[codethief]

Going for a directive (as opposed to a regulation[0]) was probably a conscious decision. From https://en.wikipedia.org/wiki/Directive_(European_Union) :

> There are justifications for using a directive rather than a regulation: (i) it complies with the EU's desire for "subsidiarity"; (ii) it acknowledges that different member States have different legal systems, legal traditions and legal processes; and (iii) each Member State has leeway to choose its own statutory wording, rather than accepting the Brussels' official "Eurospeak" terminology.

> For example, while EU Directive 2009/20/EC (which simply requires all vessels visiting EU ports to have P&I cover) could have been a regulation (without requiring member states to implement the directive), the desire for subsidiarity was paramount, so a directive was the chosen vehicle.

[0]: https://en.wikipedia.org/wiki/Legal_Act_of_the_European_Unio...