The European Commission had submitted a proposal as early as 2002 but the negotiations proved difficult because of very different situations from one Member State to another.
Chuir an Coimisiún Eorpach togra isteach chomh luath agus 2002 ach bhí na caibidlí deacair mar gheall ar na cásanna an-éagsúil ó Bhallstát go chéile.