Well, as it says in the paper:
The aim of this paper is to identify certain issues for the sole purpose of discussion with the interested stakeholders. It does not prejudge on any decision that the European Commission may take in the future.
Therefore this Discussion Paper aims at analysing the possible need and means of
improving the EU policy-making regarding General Aviation
by:
a) Gathering opinions and comments on the current state of General Aviation in the European Community and any specific issues that may need to be addressed in future;
(b) Improving the understanding of General Aviation across the European
Community and gathering more comprehensive data regarding this sector in
order to better asses its social and economic value.
So I would assume that means any interested party in GA who wants to have his/her voice heard on any of the issues - hence the posting.
GB