It makes sense. Every year there are U21 teams made up of almost exclusively players from BCSPL and others made up of a mixture of gold/silver/bronze kids. The results are extremely lopsided and not really good for anyone. The lower level teams usually end up folding after 1 season. The two tier system will encourage more lower level teams to join and stick around long enough to eventually become a full fledged men's team in the open divisions.
....and.... Nope. Not enough clubs willing to support this level. It's still like pulling teeth to get youth clubs/coaches/some players to buy into a transition to adult soccer.