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Maybe some regions do not have Special Offers and that is where it is rolling out first. SO’s only make sense if Amazon is set up in the region to get revenue for promoting books there.
In regions where there are SOs there is a communication issue: enabling the feature means disabling SO screen saver (and needing to adjust advertising rates down to compensate), or not enabling the feature on SO Kindles until the customer buys out of SO (or gets Customer Service to turn them off for free). There are more details to work out.
I suppose they could show book cover as Lock Screen image, but then replace it with the SO image when Kindle wakes up, and require you to swipe or engage the SO.
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