It is worth reading the section on Individualisation of Care. "Targets agreed with each patient on an individual basis".
There is an elderly lady who lives near me and her arthritis is so bad, especially in her hands, that she cannot cook her own meals. She relies on meals on wheels and the kindness of near neighbours. She also relies on others to test her blood sugars. To suggest that she should reach non diabetic numbers would be ridiculous as she is not really in control of what she eats. A typical individual case. Her last HBA1c was 7.4. She has no complications and does not take any meds. There is little she can do to improve this on her own.