It’s good that you were able to quote the regulations. You’re not wrong, I’m just apathetic; the question was more rhetorical. To be clear: I don’t have faith that this is strong enough to deter and/or that governing policies have enough teeth to enforce. I’d like to be wrong, but I’m not hopeful.
I feel like starfield is an experiment in user driven content (mods) to sell a game. The issue with Skyrim is that there is really only one map, and before any map extension mod came out, there were so many mods out there that competed for space on the map. Even today, large world overhaul mods are constantly stepping on the toes of other mods. City redesigns are also a problem unless you’re really good at load orders and merging.
Starfield feels like each world is an open map, ready for people to start designing content: either a colony, a cave, or anything really. The story seems loose and open ended so that it won’t interfere with large collaborative content. It’s not a game they are selling, but a modding storefront. It’s like Skyrim Creations, but putting the horse (armor sold separately) before the cart.