My recommendation would be to require the provincial and territorial organizations to implement all the policies and procedures in the universal code that the national federation has, and that the provincial and territorial organizations require those at the grassroots to have the same rules and regulations, so there is a harmonious system throughout.
I know there are a lot of legal problems with doing so, but I think that's the answer to improving the system and making it effective. Right now, it doesn't go down to the grassroots.