Earlier quoted context omitted.
Yes that is the implication. Starting something requires raising money and organizing things. Generally, at the start, only a small number of people care to do this work. And once they do it, why would they give their ownership stake away to their employees when they could just keep it for themselves?
Practically anyone already wanting to work at such a place would care to do it with the proper resources. Imagine if you could easily get a government grant to start such a co-op...
Of course, the government could subsidize co-ops to the degree that financial incentives of starting a co-op outweigh the financial incentives from starting a traditional business, and maybe they should do that, but it's not how our curent market is structured.