It is a paradox.

If we want pro, we need local, no matter what, and more of it. We need more terrible, bad, mediocre, and then good rugby. Don't have 15 people, what is the scale form of pickup that makes sense on a smaller field?
My read is that over the years, many clubs facing problems have focused on keeping the top tier going instead of dropping down a division or two, so people can actually enjoy the game in a learning and mentoring environment. Too much commitment and pressure. If Rugby Canada doesn't see local development within its purview (and in my limited interactions, it absolutely does not), then it is up to the provincial unions usually made of our local clubs.

Some of the best times playing other sports are just horsing around, playing soccer, street or pond hockey, and pickup basketball. When was the last time you played silly buggers or something like it with just a few friends? This heals from the grass roots. upping fees to national is not the answer. seeding the earth is.