But CN, you failed to read all the way to the end of 1.2.1. It says, with my bolding:
For a flight to a destination for which a prescribed instrument approach procedure does not exist, the minimum requirement is a GAF.
Although it would have been better and less confusing if the GAF amendments had been implemented more coherently, the fact is that they accommodate a thing called 'reality'.
The reality is that a lot of IFR goes on to and from places in the gaffa that have no IAP/TAF and the people who engage in those operations are perfectly capable of ascertaining the conditions at those locations and risk managing realistic uncertainty about those conditions.