Wayne, the 2yo old season was originally pushed back for "animal welfare" reasons. At the time numbers weren't an issue. Now lack of numbers is delaying all 2yo racing. Breeder/owners have to wait longer for returns on their investments .
People still have mares in the paddock and are deciding whether to breed or not, if we wait any longer those mares will be gone. They will go interstate, to ridding horses, pets or the food chain.
The whole Vicbred series was designed to encourage breeding in Victoria so the bonus should go to the breeder in my opinion. Another bonus could be added for the owners.