I truly believe it can be done, what we got now are a system where you simply don't know if you're on the right side of the TOS. You could be using something and truly be in good faith that this is ok to use, however FDEV could suddenly change their mind and ban you from accessing the game
Ok, you think it could be done. In which case, give an example of the sort of statement regarding this issue that you think a game developer should put out. Either a real one, if you know of such a thing, or a hypothetical one of your own. Because I can't see how one could possibly come up with wording that would unambiguously lay down in advance everything that would be permitted (or everything that wouldn't be permitted, if that was simpler). You can 'legislate' for things you know about, but hard and fast rules regarding things you don't know about are rather more difficult.
And as for Frontier banning people because they 'change their mind', they are a business, and they are unlikely to want to lose customers arbitrarily. Give them credit for a bit of common sense.