One of the problems is that too many CBs are aglomerations, it is very hard to be passionate about NLD or Eastern Counties.
Whereas Cornwall or Yorkshire have heritage.
Secondly the format means that many counties get one home game three weeks after the end ofthe club season.
I am not going to trek to Northumberland to watch an EC team for whom I feel little connection, frankly, I am unlikely even to trek to North Walsham, nor would I expect someone from North Walsham to trek down to Cambridge or Bury unless they were a blazer or their son was playing
Thirdly only 8 counties are in division 1 and can lift the trophy.
Fourthly no Premiership or Championship players, and in the Shield if I remember correctly not even National league players.
If we have to have County rugby, lets have a simple knockout so every CB has a chance to get to Twickers and lift the cup. perrhaps with a Shield for those that lose in Round 1, so every CB gets at least 2 fixtures. With league rugby ending in April it does neatly fill May.
To fill the entry out to a full 32 teams you may want to include the Armed forces teams, or split Yorkshire into the ridings
Open entry to all players who want to play - though with the current structured season, Premiership clubs and those in the Championship playoff would have clashing fixtures. However, if this is meant to be a showcase for the semi pro game, excluding these is probably not a bad thing.
I can see the point of the age grade county game, as it give a route for boys - and girls - from smaller clubs to get noticed. Even though I am sure there is favouritism and predjudice in the selection process, just as there are in every other human endeavour. And pushy parents will ensure their darling joins the 'favoured' club to increase their chance of selection. However, I am not sure there is a better system.