That is incorrect. Usually, the legislation happens in the trilogue, which is an abomination and everything but well representing it's citizens interest, but the Commission can do very very little if the council says no. That again is a body consisting of elected officials with varying degrees of distance from a direct election. Best example for a change: everything that happened after Magyar replaced Orban in the council. This is just to say... Its complicated. The EU can definitely do with a reform and better, stronger democratic legitimacy.