Not inevitable at all.
You need to read the basic reg. It is a load of waffle, with vague phrases which nobody could have voted against. It's got stuff like '3rd country aircraft will be subject to EC regulation' which (a) nobody could vote against because to do so is saying that there will be no control whatever over 3rd country aircraft and (b) they already are anyway - the UK CAA can bust an N-reg for being illegally maintained, not carrying airspace-mandated equipment, etc.
It's a standard political trick. You knock up vague 'enabling regulation' which is guaranteed to pass, and then you build the contentious stuff on the back of that, relying on several dishonest devices:
- few people will notice
- few people will understand it if there is 600 pages of detail
- if somebody objects, you say you are only delivering on law which the EU has already passed
Nothing new here. The gravy train riders in Brussels have had 50 years of practice but the Romans had all this pretty well polished > 2000 years ago.