I am aware of the combined small clubs rule for the Peter Palmer, which is a help, but I can't see any combined team in this year's Peter Palmer results - unless the results are misleading me. Maybe this rule needs a bit more publicity? I suspect more likely is that two small clubs with not much going on for juniors are unlikely to come together and would probably still struggle to make a team in most cases. There are also a number of restrictions (see below).
Without wishing to sound too harsh, I don't think it's enough to produce something that tries to help but doesn't work. Change is needed to find something that does work. I'm suggesting something more ambitious that has more chances of success, that is that the strong junior clubs that are entering these competitions (irrespective of size) partner on an ongoing basis with surrounding clubs for national junior competitions (ie Peter Palmer and YBT) and for coaching. So for example SO partnering with MV, SAXONS, DFOK etc (if they were interested); HH with CHIG, LOK, SLOW etc; SYO with LOG, EPOC etc, even big club AIRE if their junior section needs the support (though I thought they had a fair few juniors a few years ago?).
For the discussions information, here's the combined small club rule from the Peter Palmer rules. A small club is defined as 100 BO members (irrespective of the number of juniors)
Combined teams
2.3.1 Combined ‘small club' teams can only be made up from two ‘small clubs' that are either from the same association or are geographically adjacent.
2.3.2 Two 'small clubs' must not combine if either of them is able to enter a complete team from their own club. However, if the first club is able to enter a complete team and the second club cannot, they may then combine to form a second competitive 'small club' team.
2.3.3 Two clubs, large or small, may combine to enter additional teams provided that the large club or clubs have already entered a complete team or teams in the competition.
2.3.4 In circumstances where combined teams are formed it is assumed that clubs will pick their best runners for their own club team or teams before seeking to combine with a neighbouring club to give their 'spare' junior orienteers the opportunity to run in the competition. Any attempt by clubs to do otherwise will lead to their disqualification. The spirit of the competition is, therefore, that clubs form teams from their own members and are encouraged to develop their own club juniors. It is not the intention for Regional 'elite' teams to be formed.
2.3.5 Non-competitive teams are permitted at the discretion of the event organiser.