Yes the idea is to make the IR uptake greather in the PPL world.
However, adjusting the take-up of the IR will not adjust the basic premise that you need ATC to fly an instrument approach so even if the organisation providing the PPL IR training was based at an unlicensed airfield, they would be competing for beacon slots at licensed airfields and most of the airfields will give priority to local schools (who are already paying them for the privilege of being there).
Thus things get a bit complicated because what you (as a student) appear to save by going to the school out in the backwaters providing IR training, is consumed by approach fees and transit flights which also eat into the hours.
Remember also that if you are providing IR training from say Blackbushe you need VMC for departure and Arrival back there. This quite limits you weather wise when you are trying to sell someone the idea of weather being less limiting.
Thus an organisation based at say Filton who have unlimited procedures and use of the runway may look more expensive initially but will probably be cheaper in the long run.
This whole area is a massive minefield.
For example we have Bournemouth, Compton Abbas and Old Sarum operating in close proximity with the latter two licensed simply for the purpose of flight training.
Remove the licensing requirement and those two places will most likely immediately drop the licence and save themselves a fortune.
Bournemouth will not make any change to is licensing or charging.
If you were an organisation based ay Bournemouth which way would you be trying to persuade the CAA to go?
Regards,
DFC