I believe he is re-iterating policy, clarifying that R&R is a privilege, rather than a right.
If the personnel cannot be spared, then R&R is not possible.
Remember, there are no extra staff to cover these absences, so those left behind must take up the slack. If a unit doesn't have enough people to take up that slack without reducing effectiveness, then no absence can be authorised.
I personally don't think it'll be long before we operate a similar 12 month tour policy as run by the US Armed Forces.
(As for FSTA and A400M, as far as I know both are still on track for the "updated" delivery dates; FSTA - October 2011; A400M ~ 2014?)