On a practical level, two-year-olds are largely treated the same as three to five-year-olds in policy terms: they are expected to have the same teacher to children ratios, for instance. In contrast, ECE centres are expected to provide different teacher to children ratios for children aged under two, and a range of other policy settings are different for those children.
This example text from a political party manifesto is negative towards political corruption or abuse of political/bureaucratic power