ready to learn at two?

So Public Health England’s 7 priorities for the next 5 years include "ensuring every child has the best start in life". Outcome: An increase in the proportion of children ‘ready to learn at two and ready for school at five’

It interests me that an outcome is ready to learn at two. In my 24 years experience of working with children I have found that children are ready to learn from the second they are born. They investigate their surroundings, they try things out, they learn to sit, roll, crawl, walk, run, talk, sing, play, all generally before they reach 2.

The characteristics of effective learning are:

●Creating and thinking critically – children have and develop their own ideas, make links between ideas, and develop strategies for doing things.

●Active learning – children keep on trying if they encounter difficulties, and enjoy their achievements.

●Playing and exploring – children investigate and experience things, and ‘have a go’.

Today I observed intense concentration and all these characteristic in a 14 month old working out how to stack cups and put them inside each other.

So.... What exactly to PHE mean by "An increase in the proportion of children ready to learn at two"? What do they actually have in mind and how do they intend on measuring this?