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The CYO in Cleveland had struggled for years with this issue and came up with an annoying yet effective way to legislate and control this. The quarters are split in half, and substitutions are only allowed at the break. This situation is in place until all players have played two segments. After that, then its free substitutions. It has stopped the participation issues within the CYO organization.
At one time, (prior to the above mentioned change) I was on the darkside and a CYO coach. At our first practice, I had the players vote. Did they want to try and win the championship (had to be unanimous), or did they want to all get to play. I had teams that voted each way. But whichever way they voted (parents weren't around) a letter went home explaining playing time issues.
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"I'll talk to the organ grinder, but NOT the monkey."
--- Famous Cleveland area official to HC
"I Love Officiating so much, I do it for free. However, I charge for all the crap I take."
--- Me
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