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Firstly, this is a white paper way before formulation of actual law.

Secondly, that's kind of how UK law works, read up on the knife crime regulation:

https://www.cps.gov.uk/legal-guidance/offensive-weapons-kniv...

It's formulated as, "Carrying an article with a blade or point or an offensive weapon in a public place".

Which of course covers everything from legitimate things to non-legitimate. Which is why the law also allows for a "reasonable excuse" to be carrying such an article.

By the time any regulation is made into legislation it'll iron out the difference or define things in such a way that a reasonable person can tell the difference between an actual game mechanic and a problematic "loot box".