None of the above. All they are doing is threatening people who sell occasionally face to face. If you sell "enough" to be a dealer, then you need an FFL with a store front which meets local zoning regulations. They don't define what "enough" is, but they do make the threat that it could be as little as two. They aren't implementing an FFL program for gun show only or kitchen table dealers.
It's important to read between the lines. The point of it is to arbitrarily criminalize FTF sales (outside of law) for as few as one gun if the seller doesn't have an FFL01. FFL03 isn't good enough since you need an FFL01 to call in background checks. The administration knows full well that ATF will never approve an FFL01 for the average Joe who does not have a storefront but sells a personal gun FTF every now and then. Net effect is basically a de facto ban on FTF sales under threat of arrest by way of EA. The intent is to force private sales through FFL dealers, which registers the gun, is inconvenient, and adds a significant cost hurdle.