So, judging by the current definition, pure cosmetic, things that can't be even theoretically achieved without paying and things that do not provide definitive competitive advantage, won't be covered by the bill. So theoretically FIFA can just, say, cut out Messi from the game entirely and then sell him as an add-on. Provided that he isn't a clearly overpowered character it can be argued that such transactions does not give you an additional advantage, especially if there are some clever matchmaking that ensures that people play only against people who did the same transaction.