I think it was more complicated than that. There was in WW1 no standardised system of issuing award docs for the EK. Some guys were awarded the medal and got a doc 2 years later. Some got 2 or 3 docs for the same award... The commanding general approved the award and it was up to the Regiment to decide what docs if any were issued. Very different from 1870 or WW2 which had very different but very orderly systems of issuing documents.
This is the 3rd Saxon Doc I have with both awards. This one is interesting as it seems to have the form of an X-mas letter, but another one was to a man who was at the Ersatz Battalion back in the home depot of his regt. Very probably he was awarded the FA medal and EK2, was wounded, landed up in the E.B. and they did the paperwork to confirm he had been awarded the medals, either because the originals were lost, but very possibly because up until then he had not recieved any.
It is important to remember that until mid 1918 the Germans still planned to issue "official" documents retroactively, so all the docs we see are actually all preliminary,basically just confirming that an award had been made, except later 1918 ones where they officially became "official".
Best
Chris