You are misrepresenting the process though:
Step 1- Council thinks it has grounds to make an EDMO, notify the owner and ask them if they have any plans to bring it back into use.
Step 2- Owner (not obligated to) demonstrates they are actively pursuing plans to bring the property back into use.
Step 3- Council take into account number of caveats including if it's someone's main home and they have moved out temporarily, holiday home, home is going to be sold or let, going through probate etc.
Step 4- council are confident non of the above apply but have to get approval from an independent property tribunal before they can administer an EDMO.
Step 5- Owner cab appeal to the tribunal on a number of matters
Step 6- Owner can end the order early by deciding to live in it or sell it. I suppose living in it a bit hard to do if you own a property, deliberately leaving it empty for investment purposes.