Jim...
We both know it comes down to cost. There are companies out here in the US that have the required manuals and waivers---and those that do not. I suspect that most of the "low budget" filming is done with small companies who get a last minute call to go do some ad-hoc filming. By mandating the rules you suggest, it will prevent many of the lower budget productions from getting some good footage.
For those who do not know---there are ways to stay inside...Wescam or Spacecam systems Nose mount:
Tyler side mount:
I even flew a Schweizer with a non-gyro stabilized ball but a stabilized lens:
