Ethereum R1 developers launched the project in response to growing concerns that many existing layer-2 solutions have transformed into new layer-1 blockchains controlled by a few insiders

Quotes that support claims

“Most L2s today are acting more like new L1s than an Ethereum scaling solution — private allocations, opaque governance, and centralized control,” the developers continued.

Many L2s have become the new L1s — controlled by a small group of insiders, guided by private incentives. We believe the Ethereum community deserves a public, neutral alternative.