If there's a division , regarding the development system, between the free patch features and DLC, it's awkward indeed.
I'm not going to state that this is done out of malice, as someone also pointed out earlier, but I'm not seeing the following sequence:
->Paradox implements this on release;
->Realizes this pisses off people, and why;
->Revertes the decision, after the release;
If this goes live, i highly doubt they will go back with that decision. They have done it in the past, yes, but those were exceptions, not the rule.
An example that proves they don't act out of malice is National Focus: They don't force you to buy Res Publica to get it, since it will be provided by another DLC (Art of War, or Eldorado). If i'm not mistaken, the same thing was done for Support Independence. They, IMO, realized they made a mistake and didn't wanted to force people to buy a specific DLC to get acess to a certain game feature perceived as important (i think National Focus is WAY more important than Support Independence, but that's an opinion)
Sometimes they implement changes that aren't exactly well received and, more than once, provided ZERO justification, ZERO explanation for said ill-received changes. (50% same type idea group, remember? And let's not talk of consecutive horde nerfs.)
I'm hoping that they're changing things, from a company POV, just so that changes provided without any justification or explanation become a thing of the past.
Conclusion: I think being able to improve tax, production and manpower in your provinces should be a patch feature, just like Res Publica National Focus should have been a free patch feature, just like Support Independence should have been a free patch feature.