It seems that way after reading the pdf. They are trying to stop a practice of a company buying used phones which are out of contract and therefore can be unlocked and are later sold in other countries for full price.
Therefore they are now not required (by my understanding) to unlock that phone even after contract is up.
So in short consumers should now buy unlocked and not subsidized phones. If carriers don't want to activate your unlocked device because their firmware is not on the phone then they could also tell you to go screw yourself.
Which damages the used cellphone market and will also give carriers greater control of what devices are on the network and how they are used.
In the process though it gives us less options so they can feel safer. It's also a indirect benefit for handset makers and allows for the use of backdoors because it's "Their firmware".