That cannot be operationalized. People at higher risk of HIV, what does that mean? How do you define who is at higher risk for HIV? You have to look at specific situations where you can say yes, the person belongs to a higher risk group, or no, he or she doesn't belong. That's why annex E is there. It is to specify very clearly what we mean by higher risk. It doesn't say that someone who is in that group will be infected; it just means that this group has been identified as being at higher risk.
Those who received clotting factors in the days when the blood products were not as safe versus HIV are deemed to be at higher risk. They're not all infected; it's just that as a group they are at higher risk. Therefore, we need to take that into consideration when evaluating the risk.