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Never say never but I would be stunned, we are finding it hard enough to build the infrastructure for 20% of 2 year-olds from September without even starting on the planned 40% for Sept '14. To give places to all 2 year-olds would take a huge amount of work.
Not a chance it could be afforded or the places found, IMO. Because of the adult to child ratio required DDs preschool will only take a set number of under 3s, they can't afford to run if they have too many as they need more staff. So much as it might be nice, I suspect it won't happen.