Here's the problem.
Joe owns a team for a number of seasons and brings his IFA budget down to $2m for whatever reasons. He now decides that he wants to bring it up to $14m next season, but is constrained by the $4m change limit. So he creates an alias, Bob, and has the team transferred from Joe to Bob. He sends in a ticket (as Bob) and says "I'm a new owner, can you reset my budget?".
And just like that, he has found a way to get around the $4m budget limit that everybody else is constrained by.