Seems like a pretty ineffective way to hold down costs. No one is required to build foreign academies. The academies themselves aren't a huge expense, and without them teams that want to have involvement in the region need people down there, maybe more than there are now. Seems like a more likely outcome is that the teams that don't want to spend are wanting to have competitive parity with those that do, so the rules are changing to accommodate that minority. They are a pretty big expense with no way of generating revenue on their own. If the handful of teams with those academies are going to monopolize all the talent the other teams will be forced to spend money on all the second and third rate prospects, or abandon the market. It isn't a perfectly efficient way to hold down costs, but they can't just do the real obvious ones without running into trouble with the law and/or the players' association.