There are plenty of post-war campaigns that had significant threat to life and limb that were not recognised with an individual medal. The 1962 General Service covered 18 campaigns and the 1918 GSM 17 campaigns with 10 of those post-WW2. That is an awful lot of medals not created and supplied.
Agree there but these campaigns have been recognised and awards made to cover them be it a bar to the GSMs. My reading of this is that it is to look at campaigns which have not been covered previously.
Also one of the things they are looking at is is the "double medalling" which IMO is to look at the Saudi and Kuwaiti medals for Gulf part 1