Yes it sort of seems like the main goal is to get subsidized or publicly funded, licensed daycare in place.
I can see advantages to a program like that for working parents but they should just be honest and say that is their initiative rather than saying that the child will fall behind if they don't start at age 2.

As a stay at home mom I had a lot of issues even sending my 4 year old to JK every other day - I am so glad I missed the full day, every day because I felt that I was losing them so early. I can't imagine wanting to send a 2 year old away rather than bonding with them or having time with them at home. I can understand that working moms (outside the home) don't have a choice but there are parents who are stay at home and who do want to spend the time with their children while they can.

I wonder how far this study will go and whether they will really contemplate legislating something for this.