Just because it's interesting, not because I feel qualified to have a real opinion ... If you look at the 2016 Scientific Advisory on Nutrition "Vitamin D & Health" report which forms the basis for NHS guidance, you'll see this about rickets:
S.14 Evidence was mainly from cross-sectional observational studies and case reports and may therefore have been influenced by confounding. Since most studies did not measure calcium intake it was not clear whether the cause of rickets was vitamin D deficiency and/or calcium deficiency. A distinct threshold serum 25(OH)D concentration above which there is no risk of rickets could not be identified but the data suggested overall that the risk increased at serum 25(OH)D concentration < 25 nmol/L; this concentration is, however, not a clinical threshold diagnostic of the disease.
In other words, no high-quality evidence (in terms of the usual evidence pyramid) for a causal link between Vit D levels and rickets. In particular, no certainty that the causal link is not calcium deficiency (or something else) rather than Vit D deficiency. As in the VITAL study findings, maybe Vit D levels are just a marker not a cause.
The 25 mmol/L concentration threshhold and the 400 UI daily intake rec seem to have little basis. In the link I posted, a member of the US committee which came up with the equivalent threshholds there now calls them arbitrary and meaningless.
Looking at a US summary of the same kind of guidance
https://ods.od.nih.gov/factsheets/VitaminD-HealthProfessional/#en16 you see this comment:
Researchers have not definitively identified serum concentrations of 25(OH)D associated with deficiency (e.g., rickets), adequacy for bone health, and overall health. After reviewing data on vitamin D needs, an expert committee of the Food and Nutrition Board (FNB) at the National Academies of Sciences, Engineering, and Medicine (NASEM) concluded that people are at risk of vitamin D deficiency at serum 25(OH)D concentrations less than 30 nmol/L (12 ng/mL; see Table 1 for definitions of “deficiency” and “inadequacy”)
That FNB/NASEM committee is the one referred to in the comment re arbitrariness above.
In both the US and UK cases, despite the weakness (acknowledged in one way or another) of the foundational evidence, the guidance nevertheless proceeds to treat Vit D deficiency as an established cause for rickets. (Similar comments for osteomalacia, the other main driver for the recommendations.)
Anyway, to me there just seems to be a real dissonance here.