Who do the BHA think they are trying to appease? The animal rights lobby won't be satisfied until racing is banned completely, and probably not even then - they'll seek some sort of punitive retro revenge.
The wider public don't give a monkey's in general If some have a vague notion that racing is cruel then educate them, don't endlessly muck about with farcical whip rules that could end up with tragedies when jockeys can't control their mounts properly. But the BHA is frightened of its own shadow, utterly set in craven virtue swignalling.