Sadly that means you can only use the rifle on cleared land. I can't imagine 4 million open tickets ever being issued.
A few years back when I wanted to do the FT Worlds in Poland I tried hard to get a EFP and even asked if my EV2 could be put on ticket (how prescient was that!!) at sub 12 fpe to enable me to have a EFP. Answer, under 12 is not specially dangerous (on this side of the Irish Sea) and you can't have it on ticket as the police and HO don't have the capacity to issue all those tickets.
Actually, there was only going to be about 50 or so Brits going to Poland so it wasn't a huge drain on resources. Those who flew wouldn't want the EFP anyway, it was just the intending overlanders.