Last year our administration desperately tried to drop us to a JV Only schedule due to the fact that Freshmen made up 60% of our roster. Stay 11 man, just play a JV schedule. We tried to do exactly what you suggested above. NSAA said absolutely not, you are obligated to play Varsity first, JV second. So that didn't work.
I agree that scheduling these teams exclusively with one another makes sense. I also believe the exemption should go away. Post season eligibility is for schools that are playing within the Class that their enrollment matches. No exceptions. That would make that scheduling even easier. However, that would require a vote and there's NO WAY THAT WOULD PASS. Remember the shot clock thing that Class A and B want... payback time. Plus, unaffected schools look at the big picture and say "are we really having this conversation... Schuyler still can't win a game, Winnebago still struggles, Twin River probably won't win an 8 man game, can we please talk about something that really matters". Throw in the fact that the schedule is already being done this way to the degree that it makes sense. Again, we have our panties in a wad but the people with a vote don't see it as nearly the issue we make it out to be.
Your suggestion about trying to get to the root of the problem is great. I know our school district has tried this repeatedly. They have pulled families, met with every single boy in the HS, tried hosting picnics and events, etc.. Some schools just don't have kids that want to play football. Since the decision to opt down, we (supposedly) have had several new kids come forward and state that they will be playing next year. However, we have also had (supposedly) some families state that they are switching schools because they want their kids to play "real football"??
I want to thank you for your posts and replies. You are respectfully bringing good ideas without all of the emotion and brain damage that many of these threads can cause. I sincerely appreciate it.