The only teams that are able to field a full team are those who started recruiting on day 20 last season or created the bulk of the team themselves.
Even if there is demand for 25 leagues of Pee Wee owners, there is not nearly enough demand for that many level one players, created at the right time, who want to play championship level Pee Wee ball.
25 leagues * 16 teams/league = 400 teams.
400 teams * 62 players/team = 24,800 players
I doubt that around 24,800 players are being created around the start of the season to qualify filling up all of the Pee Wee teams.
Here's the math for Bort. He knows around how much flex is purchased or used between day 31 and day 1.
24,800 players * ~175 flex/player = 4,340,000 flex.
Some players will also buy custom equipment:
24,800 players * 600 flex/player for custom equipment = 14,880,000 flex for custom for all players
Then from day 1 to day 31 you would expect the following from competitive teams:
4,340,000 flex for players * 3 boosts = 13,020,000 flex to boost those players.
Some players will buy the skill tree boost for their players:
24,800 players * 300 flex/player for custom equipment skill trees = 7,440,000 flex for custom for all players
If every team were to produce a competitive team full of boosters and CEQ buyers, that would require 39,680,000 flex points per season. Many of these players will be retired to start again, so the total number of flex points purchased will not need to be as high for the next season. I also forgot to include the extra 400 flex per team per season in this calculation, but that can be forgiven.
Let's say that most people buy 7,500 flex for $54.75 (some will buy more, some will buy less), that would be $ 289,664 for the first season of full Pee Wee, which I'm guessing is not at all what Pee Wee is actually bringing in.
62 players/team assumes (24 Defense + 12 SPT + 23 Offense + KR/PR + K + P), which the most competitive teams are going to be employing. You can run a weaker team without devoted special teams players and fewer backups, but you aren't going to win any trophies in a competitive league with so few players in Pee Wee. No one has the stamina for that.