The issue here is that if a SS team wanted to create a Subbies club then it would need to come through the Divisions. Similar to the way that Shute Shield Board members don't want promotion & relegation I would think that the majority of Clubs in Division 1 & 2 of Subbies would not want a SS team to just waltz into Division 1.
Furthermore I am not sure of the constitution but I would think that the bi-laws prevent a team coming straight into Div 1. Div 2 teams would be up in arms.
And when a SS team did come into Div 1 or Div 2 they would have to provide 5 grades plus 1 Colts team to match the other teams in those Divisions.
That is why it would be difficult for a Club to come straight in and makes more sense for affiliations but I don't see too much benefit for the Subbies team unless they provided cash, admin, coaches & players.
In other words I cant see this happening.
I never suggested they come straight into division 1 or 2. Aboslutely come through the divisions. They could however by virtue of numbers come into Div 5, or even solve the Subbies "Div 4" problem. Interestingly though, if you've seen some Div 3 Subbies Rugby or higher, I think many SS lower grades "Waltzing" into anything would be an assumption.
Separately, one of the quaint little traditions in Subbies is there's a gradings meeting every year where all Clubs get to vote on which division their contempories play in. If the Clubs had no problems they could very easily put a SS side straight in to Div 1 if they wanted to. Don't see it happening though.
As for the "paperwork", that exists because, currently, you have to change clubs to play between the two competitions. I believe staying in the same club requires no paperwork. As I've mentioned before, I've seen SS Clubs enter teams in lower divisions before as well as U85kgs competitions. I've been a part of moving several players between Clubs and competitions. It's only as hard as people want to make it. Otherwise it takes about 5 minutes when everyone works together.
For those fearful of Clubs stacking their lower divisions, how long do you think that would last. The point of lower division Rugby is fun. You keep screwing those guys over you lose players, members, supporters and (the real biggy) money. As I said, cultureless clubs will die.