In the open silver, there is only 1 score for all the jumps and spins. In a FS 4 program, there would be a score for each element: flip, loop, sit spin, etc. So you don't need to do an axel, but could still place well with good jumps, spins, and choregraphy.
My DD has skated this category for 2 years - struggling with her inconsistent axel. The rest of her jumps and spins are solid and she has great choreography. The first year she skated it no kids attempted axels. This last year all the kids attempted axels. My DD underrotated hers and still ended up consistently 2nd place. She placed above girls that landed axels, but had weak flips and lutzes. The girl that consistently came in first had a good axel and excellent choregraphy.