Some legislation is to lay the ground work to expand it later.

Easier to lay a sub floor and put carpet over it later, than to just put carpet over the studs. When you're changing a massive thing like this, it's better to start small and work outwards. Canada introduced universal Dental and Phamacare and it was limited to certain demographics. People bitched about "Well what about me?"

You're coming. Start with what/who is most important, make sure the system works, and carry on from there.