12.6 (4π) lumens = 1 candela assumes that the light is evenly spread over a full sphere.
(1),As soon as it's emitted over a smaller angle, or is unevenly distributed, the candelas go up. Most blinkies emit light backwards only, and have a very obvious hot spot in the middle, so it's quite easy to get 4 candelas from 1 lumen and still have a useful bike light.
(2),The law says nothing about the angle over which your 4 lumens is measured, but I would imagine that a judge would decide that it was what was emitted towards a following driver that mattered.
(1),
The Candelas/lumens don't increase but the LUXX does when you focus the light into a beam (*measured at a set distance from the emitter)
P.S. As you so rightly said the lumen/candela is the total output of the light which is easily measured.
So therefore the Minimum for a "blinking" front light is approx. 50 lumens or 4 candelas total output.
Plus the quoted output was for the FRONT light.
BUT that wasn't the point of it, what it was about is the Height of the front light which is a MAXimum of 1500mm above the ground not the MINimum.
(2),
Aimed forwards and visible from the front.
My previous thread quote was copied from the RVLR on the Govt site.
* Can't be bothered to look it up as it's not relevent to this discussion.