[toyg]

The Commission acts almost exclusively on mandates extended by the EU Council (i.e. national states), which also nominates commissioners. EU Council effectively tells the Commission "Something should be done about X; write a directive to achieve Z, K, and J". Then the Commission sits down with MEPs and national ministers to bang something into shape. It very rarely comes up with original policy suggestions, and when it happens it tends to be big news - like with the daylight savings stuff, which eventually wasn't carried through because the EU Council (i.e. governments) wasn't particularly interested.

Political initiative and agenda-setting, in the EU, are firmly in the hands of national governments - they just hide behind "Bruxelles bureaucrats" as a shield.