Remember that the PDGA does not employ TDs. TDs do what they do because it works for them. PDGA policies have been shaped by popular practices, not necessarily because it was the "right" thing to do whatever some may feel. The PDGA tournament structure provides a lot of flexibility for TDs and your suggestion would be covered. But it's up to the TDs to try it and see if it works for them.
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Very simple; prior to Kevin making the radical change of PDGA league fees, SOMEONE thought it was a good idea to charge each individual $10 a round, per week, to do the same task. According to your reply, 0 leagues and 0 people outside the PDGA thought that was a good idea.
Lower the price to $1, give half of that to the local club....boom, 175+ new PDGA leagues formed (three in my little city alone last year). Why? People saw the value, amongst other things.
There wasn't a change in league fees. They started with $1 and the 50/50 split. There was no league program of any kind before 2012. So I'm not sure what you mean by the $10 a round per week number?