Because it's not "the same people". This is legislation in a huge bicameral legislature with a multitude of interested parties, including 28 member states and e

Because it's not "the same people". This is legislation in a huge bicameral legislature with a multitude of interested parties, including 28 member states and eight political groups. That's before we even consider lobbying interests. Such legislation is usually a tug-of-war that involves lots of horsetrading and compromise (similar to the US Congress, really), because it requires majorities in both houses of the legislature. So you have the various political factions duke it out in the lower house (European Parliament) and the member states in the upper house (Council of the EU). The current proposal has seen a lot of back-and-forth between the conflicting interests of the member states (for example, Germany likes Article 11, but doesn't like Article 13, while other member states have different priorities).