If you consider 2-opt moves that (temporarily) result in a worse solution, then it is possible. Lets say you have a route:
A → B → E → D → C → F → G → H → A
A 2-opt move can be seen as reversal of a part of the tour. For example the 2-opt move that results from removing the link B→E and C→F reverses all stops between B and F.
E → D → C becomes C → D → E and the tour becomes: A → B → C → D → E → F → G → H → A
We also know that, if two sequence 1 and 2 consist of the same elements, then there exists a way to transform sequence 1 into sequence 2 by solely reversing orders within sequence 1. This is called the inversion distance and there exist polynomial solutions to it.
Please checkout the following references for more information on the inversion distance:
Kececioglu, J. and Sankoff, D. (1993). Exact and approximation
algorithms for the inversion distance between two chromosomes. In
Proc. of 4th Conference on Combinatorial Pattern Matching (CPM’93)
Bergeron, A., Mixtacki, J., & Stoye, J. (2007). The inversion distance
problem.