This seems extreme for the long tail of hobbyist apps. Finding 20 testers seems like a huge commitment for an unproven app, and I’m sure it would be a hurdle many apps currently in Google Play would not have gotten across if it existed then.

I wonder if this is a deliberate attempt to shut out hobby apps from their app store for whatever reason, rather than a good faith attempt to improve app quality.

In parallel they are also forcing people to publicly attach their real name to apps (people have long had to tell Google who they are to get in the app store, but not to make it public) - which might be another thing that is no big deal for big companies, but many smaller hobbyist app devs might think twice about doxxing themselves given how hostile people are on the Internet these days and how many crazies there are out there.