Yes, I think that what you are stating is correct. The Dutch word for society is literally samenleving, which means living together. This means that the society per se has to protect the life of those who belong to the community. Any act that intends to kill a person should be justified on an individual basis. Some doctors experience that as burdensome. On the other hand, the criteria for euthanasia are so clear nowadays because the review committees have made a jurisprudence so that this is no longer experienced as a serious problem. But you are right: a doctor can never be certain before he has received notification from the review committee that he will not be prosecuted.
On May 3rd, 2016. See this statement in context.