That is pretty stupid...I guess it will effectively keep people from making some crap game and throwing it on the service, but it will also prevent independent game designers from truely experimenting with the service as well. *sigh* Why must you rear your ugly head corporate cynicism...why!?
Anyways, it is intended as a deterrence. Early on this game generation, Nintendo stated that creativity will be driving force. The plans on an easy cash in could make developers consider what is adequate gaming. Of course, the shovelware issue is generally considered on the optical based case, not the downloaded content issue.