We have a lot of different political and government bodies. Like the “checks and balances” the US had. So when you read “Switzerland wants to…” it could be:

• A survey of people living in Switzerland
• A initiative (an official political vote done by the swiss citicens)
• One big or multiple parties signing an agreement
• A group of cantons or communal legislative or executive politicians
• A group of semi-official people (like the conference of cantonal privacy-advocates (“Kantonale Datenschützer”, keine Ahnung wie all das Zeug auf Englisch heisst, Hilfe)
• Our parliament or a comitee in it
• Our other parliament or a comitee in it
• The federal court
• The federal chancelor
• The federal government

I probably forgot a few and misspelt a lot but you get the idea. And all of them are different elected or appointed persons, with their own opinions.