Because the EU doesn't have the equivalent of a House of Commons where MPs (MEPs) can table bills for debate and legislation. Everything like that in EU comes from the top down and the subjects for debate are controlled (tightly) by the cabal at the top of the EU pyramid. But you knew that already.
Which is no different to here. Simon Stevens, for instance, is the boss of the NHS, and runs it with the bosses of trusts across England. The Health Minister signs off on things but doesn't actually propose policies themselves, they're done by the civil service.