I don't know the specific of this proposal, but generally ICANN policies only apply in very limited ways to ccTLDs. That makes them an incredible headache for registrars as they all of their own special rules and regulations and many don't even use EPP.
Even gTLD operators are special little snowflakes in their own way: if the EPP RFCs and ICANN regs give them any leeway to do something silly, they'll do it. Some of them, such as Neustar, don't even bother responding with correct greeting documents.
Dealing with registries, be they ccTLD or gTLD registries, is just a massive pain in the ass.
