The commission proposes, then both council (= national governments) and the directly elected European parliament each develop their own position on this basis.

The commission proposes, then both council (= national governments) and the directly elected European parliament each develop their own position on this basis. Each of those two positions is already a compromise between the different national and political groups. The three organizations then meet in trilogue and hammer out compromises ('trilogue') with the commission facilitating but ultimately having little say on the outcome, except to block where something violates the EU treaties. Ultimately both Parliament and council (at minister level) have to vote and agree before it becomes law. So indeed lots still to be done and this is likely an attempt to already offer a compromise and will be reasoned (e.g. exempting these might be a small sacrifice if it gets a compromise that covers 99.9% of flights) - but given how visible this is it seems unlikely to stay in as Parliament will rally against it. You can also expect some egalitarian and green countries (Sweden, Finland, if the greens fet into government in the coming election even Germany) to already kill this in the council position.