My bet is on licenses granted but no car presented for testing, as is consistent with what Mr Blogz from Glasgow says.
And if you look on the council's application webpage, down the right hand side there's a link to a letter that can be completed for those applying for a 'no car licence'.
https://www.glasgow.gov.uk/index.aspx?articleid=17616Another factor is that in Scotland the cross-border thing doesn't work - you can take people to other areas and pick up pre-booked fares from other areas, but you can't permanently station cars in areas they aren't licensed in.
All makes sense really - as I said above, although the presumption is generally that an application requires you to specify a car, if you think your application might not be approved then even if it's just a £5k saloon or whatever, then no point in buying one before your application is approved and then maybe having to sell it on again if your application is unsuccessful.
Another factor again in Glasgow is that I think they have a five-year vehicle age limit on new applications, so again you'd typically need a fairly new vehicle, so no point buying on spec if you don't own one already.
Think there are around 3,000 PH cars in Glasgow, so there are bound to be a few oddball scenarios cropping up, ie people changing circumstances unexpectedly, moving away from the area etc.
And allowing 'no-car' applications probably conforms with the law, which is presumably why Glasgow allows it, but elsewhere I suspect most councils just say that you have to specify a car to apply, and people never challenge it, which is why it never arises elsewhere (or at least we don't hear about it).
And perhaps the specific requirement to surrender the licence if it's inactive is something peculiar to Scotland, which again is maybe why we don't hear about the Glasgow scenario elsewhere.