212man,
Firstly, I do not speak or think for the CAA (as you know) - my intention was to clarify the conditions under which the changes are being proposed (from my reading of the CAP).
It would appear that from a specified date,
all passengers will have to be equipped with a Category A device.
With respect to your question: there will be no distinction in the future, however, up to the time that the final requirement comes into force, there appeared to be the need for an interim solution.
It looks like there were two alternatives:
wait until Category A devices are ubiquitous and leave yourself hostage to others; or,
put into force a partial solution which is not ideal but gives incentive for an expeditious provision for re-equipment.
I'm not sure what my decision would have been under those circumstances but, knowing the pressure that the CAA are under at this time, I am not surprised by theirs.
Jim