I hear you, Mel.
In my case (yes, I was one of those who had the idea) -- I can think of a way to do it as a single piece, and I think people would "get it". If the council had decided against this, I might have fallen back on that. (Or I might have done the comic-strip, just not for the contest.) The single-panel concept came to me first... but then I thought of a way to show a slight progression that would make it clearer. And I thought, "huh! why not?"
One of the things the council was worried about was... we don't want anyone to ever feel like they "have" to do a multi-panel piece for a contest. But the thing is, based on past contests and past winners -- the group has a tendency to vote based on a variety of factors, not just how "elaborate" a piece is. Part of it is the concept itself, or how it made a person react when they saw it. We decided that the same would continue to be true, even if contests had both single-panel pieces, and multi-panel pieces. Folks will probably continue to mostly react to the idea being depicted -- and that can be just as effective in a single piece as in a "comic-strip". (We wanted to be very sure that the decision would be fair to all entries.)