Yes it is very complicated - and yet ... why would he Government want to increase costs by putting people with conditions that could really be helped by, say statins- unless it made financial sense as well as medical sense. GPs are encouraged to discuss the benefits of statins if you have diabetes or heart disease and a raised cholesterol - but they can't force you to accept. Most GPs I know would have much preferred not being given quotas in exchange for financial gain, as they knew it would alter the trust between patient and doctor.
Look at immunisations for children and flu jabs for the elderly or with conditions that would make flu dangerous - it makes sense to encourage GPs to spend more time explaining the benefits. It can take a huge amount of time and patience to explain the benefits of immunisations to parents after the dreadful Wakefield accusations re: Crones and autism. And yet, for all the children to be safe form the return and disastrous effects of diseases like measles, you MUST have a high intake overall, approx 90+% - so time and effort to educate, explain, etc, is well worth while. And costly too - would the Government via NHS spend so much time and money to explain all this, just to benefit big pharmas- or because it saves lives?
GPs were also forced to open surgeries earlier and later to benefit working patients- so they could see a doctor before or after working hours. Makes no sense to offer those aps for retired patients at all - and as you say, no sense for a GP NOT to be eating his meal with her/his family if nobody wants the late/early aps!