My impression is that Google looked at the existing phones and the way they were being sold (exclusive to specific carriers, and used to lock consumers in, just like all prior phones) and felt that it just wasn't doing the job the way they'd planned. Android had a reason for existing, and it was to break the logjam in the mobile industry so that Google could get on with the business of monetizing the hell out of mobile users. Since the old players decided to use Android to play by the old rules, Google simply reminded them of the way "open" is supposed to work. The play here is not for Google to become a traditional mobile device provider or to become a mobile service provider (though they'll touch on both). The play is to make the mobile web standard enough and good enough and pervasive enough to where Google can work their money-making magic there. Telcos are standing (aggressively) in the way of that, and the device makers remain willing partners in those plans.