Your assumption that creating a lower tier will cost them more flies in the face of business logic.
Cutting events into two tiers means the lower tier events will have less going on, IE: less to set up, less logistical concerns, less people/companies to contact and pay for services, less vendor space to have to contend with and manage, les entertainment for the fans to book and pay for, etc etc etc.
The fact this distinction is being made at all, is a sure sign of the NPPL wanting to cut corners wherever possible. Go ahead and slap a coat of fresh paint on it and spin this as a positive development all you want, the fact is that the NPPL is struggling and it's no secret.
Kent State University Paintball Club Eminence